DU:30065049 - DROdro.deakin.edu.au/eserv/DU:30065049/versace... · Vincent Versace 1*, Jacquomo...
Transcript of DU:30065049 - DROdro.deakin.edu.au/eserv/DU:30065049/versace... · Vincent Versace 1*, Jacquomo...
This is the published version Versace, Vincent, Monk, Jacquomo, Ierodiaconou, Daniel, Scarborough, Helen, Wallis, Anne and O'Toole, Kevin 2013, Warrnambool and Corangamite land suitability decision framework study: technical report, Deakin University, Melbourne, Vic. Available from Deakin Research Online http://hdl.handle.net/10536/DRO/DU:30065049 Reproduced with the kind permission of the copyright owner Copyright: 2013, Deakin University
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Warrnambool and Corangamite Land Suitability Decision
Framework Study:
Technical Report
March 2013
Vincent Versace 1*
, Jacquomo Monk 2, Daniel Ierodiaconou
2, Helen Scarborough
3,
Anne Wallis 2, Kevin O’Toole
4
in association with
Trevor Budge 5, Mark Chesterfield
5
1 School of Information Systems, Faculty of Business and Law, Deakin University
2 School of Life and Environmental Science, Faculty of Science and Technology, Deakin University
3 School of Accounting, Economics and Finance, Faculty of Business and Law, Deakin University
4 School of International and Political Studies, Faculty of Arts and Education, Deakin University
5 Community Planning and Development Program, Faculty of Humanities and Social Sciences, La Trobe University
* Current address: Greater Green Triangle, University Department of Rural Health, Flinders and Deakin Universities
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Table of Contents
Table of Contents ....................................................................................................................... ii
Executive Summary .................................................................................................................. vi
List of Figures ...................................................................................................................... xxiii
List of Tables ....................................................................................................................... xxvii
1 Introduction ...................................................................................................................... 31
1.1 Project Background ................................................................................................... 31
1.2 Warrnambool City Council Local Government Area background ........................... 32
1.3 Corangamite Shire Council Local Government Area background ........................... 33
2 Strategic Planning Framework ......................................................................................... 35
2.1 Strategic and Statutory Land Use Planning in Victoria ............................................ 35
2.2 State Policy and Strategy in Respect to Rural Areas and Agricultural Land Use and
Development ........................................................................................................................ 39
2.3 Summary of Rural Zone Areas in the Warrnambool City Council Local Government
Area ...................................................................................................................................44
2.4 Analysis of the Corangamite Shire Council Local Government Area Planning
Schemes in Respect to their Rural Zone Area
...................................................................................................................................55
3 Consultation ...................................................................................................................... 69
3.1.1 Strategic Planning Consultation ......................................................................... 70
3.1.2 Statutory Planning Consultation ........................................................................ 72
3.1.2.1 Warrnambool City Council Local Government Area......................................71
3.1.2.2 Corangamite Shire Council Local Government Area......................................72
3.1.3 Stakeholder engagement .................................................................................... 75
4 Land use Assessment and Mapping .................................................................................. 79
4.1 Introduction ............................................................................................................... 79
4.2 Agriculture in Warrnambool City Council Local Government Area ........................ 81
4.2.1 Introduction ........................................................................................................ 81
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4.2.2 Current Land Use Status in Warrnambool City Council Local Government Area
............................................................................................................................82
4.3 Key Findings – Agriculture in Warrnambool City Council Local Government Area
...................................................................................................................................85
4.4 Agriculture in Corangamite Shire Council Local Government Area ........................ 85
4.4.1 Introduction ........................................................................................................ 85
4.4.2 Current land use status in Corangamite Shire Council Local Government Area
............................................................................................................................86
4.4.3 Dairy Suitability ................................................................................................. 94
4.4.4 Cropping Suitability ........................................................................................... 97
4.5 Key Findings – Agriculture in Corangamite Shire Council Local Government Area
...................................................................................................................................10
0
5 Tourism ........................................................................................................................... 101
5.1 Tourism in Warrnambool City Council Local Government Area........................... 101
5.1.1 Introduction ...................................................................................................... 101
5.2 Key Findings – Tourism in Warrnambool City Council Local Government Area . 103
5.3 Tourism in Corangamite Shire Council Local Government Area........................... 104
5.3.1 Introduction ...................................................................................................... 104
5.4 Key Findings – Tourism in Corangamite Shire Council Local Government Area . 105
6 Rural Residential and Rural Living Development ......................................................... 105
6.1 Introduction ............................................................................................................. 105
6.2 Influence of ‘Lifestyle’ Blocks on Surrounding Farming Zone in Warrnambool City
Council Local Government Area ....................................................................................... 106
6.2.1 Planned Conversion of Agricultural Land in Warrnambool City Council Local
Government Area ........................................................................................................... 106
6.2.2 Unplanned Conversion of Agricultural Land in Warrnambool City Council
Local Government Area ................................................................................................. 107
6.2.3 Public Perceptions of Urban Expansion in the Warrnambool City Council Local
Government Area ........................................................................................................... 115
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6.3 Key Findings – Rural and Residential (Warrnambool City Council Local
Government Area) .............................................................................................................. 119
6.4 Influence of ‘Lifestyle’ Blocks on Surrounding Farming Zone in Corangamite Shire
Council Local Government Area ....................................................................................... 122
6.4.1 Unplanned Conversion of Agricultural Land in Corangamite Shire Council
Local Government Area ................................................................................................. 122
6.4.2 Influence of Tenancy and Holdings on Agricultural Land in Corangamite Shire
Council Local Government Area .................................................................................... 127
6.5 Key Findings – Rural and Residential (Corangamite Shire Council Local
Government Area) .............................................................................................................. 131
6.6 Recent Subdivision and/or Dwelling Related Planning Permit Activity in the Rural
Zones .................................................................................................................................132
6.7 Key Findings- Recent Subdivision Activity............................................................ 144
7 Biodiversity .................................................................................................................... 145
7.1 Introduction ............................................................................................................. 145
7.2 Biodiversity and Planning Schemes ........................................................................ 145
7.3 Biodiversity in Warrnambool City Council Local Government Area .................... 150
7.4 Key Findings- Biodiversity (Warrnambool City Council Local Government Area)
.................................................................................................................................155
7.5 Biodiversity in Corangamite Shire Council Local Government Area .................... 156
7.6 Key Findings – Biodiversity (Corangamite Shire Council Local Government Area)
.................................................................................................................................163
8 Energy Production .......................................................................................................... 163
8.1 Introduction ............................................................................................................. 163
8.2 Wind ........................................................................................................................ 163
8.3 Geothermal .............................................................................................................. 164
8.4 Wave........................................................................................................................ 164
8.5 Solar ........................................................................................................................ 164
8.6 Gas ........................................................................................................................... 164
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8.7 Key Findings – Energy Production ......................................................................... 165
9 Climate change ............................................................................................................... 165
9.1 Introduction ............................................................................................................. 165
9.2 Water ....................................................................................................................... 166
9.3 Primary Production ................................................................................................. 166
9.4 Biodiversity ............................................................................................................. 167
9.5 Coastal Impacts ....................................................................................................... 167
9.6 Key Findings – Climate Change ............................................................................. 169
10 References ................................................................................................................... 170
Page vi of 175
Executive Summary
Introduction
The Warrnambool-Corangamite Land Suitability and Decision Making Framework (the
Project) is a joint project between the Corangamite Shire Council (CSC), the Warrnambool
City Council (WCC), the Victorian Local Sustainability Accord, and Deakin University.
The Project was developed with the objective to establish a land suitability and decision-
making framework for the WCC and CSC that can be applied to improve the basis for
regional and local planning. The Project aims to improve approaches to regional planning to
preserve highly productive agricultural land, protect and enhance the environment, whilst
supporting sustainable regional development and settlement.
The research was undertaken by Deakin University in association with La Trobe University
and guided by a Project Steering Committee representing a broad base of industry, natural
resource managers, government agencies, community members, and councillors. These
included;
Warrnambool City Council Councillor
Corangamite Shire Council Councillor
Warrnambool City Council Strategic Planner
Corangamite Shire Council Strategic Planner
Glenelg Hopkins Catchment Management Authority
Corangamite Catchment Management Authority
Department of Sustainability and Environment
Department of Primary Industries
Page vii of 175
Department of Planning and Community Development
Wannon Water
Regional Development Victoria
Southern Rural Water
WestVic Dairy
Victorian Farmer Federation
Warrnambool City Council Community representative
Corangamite Shire Council Community representative
Moyne Shire council representative
Community Consultation
Consultation activities were an important element in defining and refining the scope of this
Project. From the early stages the Project Steering Committee members were given the task
to act as advocates for the Project and represent the viewpoints of their community,
organisations or constituents.
At the beginning of the Project the Steering Committee and selected council staff were
provided with a summary of the broad objectives and were invited to provide feedback (via a
written survey) about its direction and feasibility. Through this process the following key
issues were identified in each of the local government areas (LGAs):
Warrnambool City Council Local Government Area
1. Protection of agricultural land was the most pressing issue for Warrnambool Planners.
Associated with this the following issues were raised:
Page viii of 175
Minimum lot size for subdivision.
As of right dwellings (identified as the most important factor threatening agricultural
land).
Requirement for guidance on Farming Zone decisions.
2. The need for a macro approach to planning was identified (i.e. by making the Municipal
Strategic Statement clearer).
What is the purpose of each zone and what does it seek to achieve?
What other pieces of legislation (e.g. Coastal Management Act, Heritage Act) could
be evoked? And what would the triggers for this be?
3. Another issue discussed was urban consolidation and use of other zones:
Residential 1 Zone is currently widespread – but very conservative.
Residential 2 Zone may better encourage consolidation.
Better local policy on subdivisions and dwellings (pertains also to agricultural land).
Corangamite Shire Council Local Government Area
The three most pressing statutory planning issues for CSC LGA were identified as:
1. Rural Housing:
Existing houses and excisions.
Existing houses and lot sizes (over 40 hectares).
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New houses on smaller blocks.
2. Rural subdivision:
Small lots.
Above 40 hectares and boundary alignments (titles and the rights they provide).
The consideration of non-agricultural uses.
3. Demand for rural lifestyles:
Statutory and strategic levels.
These issues were addressed either through applied research or through the strategic review
of the respective planning schemes.
Key Research Outputs
The research contained within this report clearly identifies the conflicting pressures for the
use of farmland between residential and agricultural use. Outputs from the research included:
A strategic review of WCC and CSC Planning Schemes in relation to the
implementation of the state provisions and then their local provisions.
An assessment of agricultural versatility in the WCC LGA.
An up-to-date land use map of the CSC LGA.
Predictions of dairy and cropping suitability under current and future climate
scenarios for the CSC LGA.
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The impact of ‘lifestyle’ blocks (i.e. parcels classified as 117 Residential Rural/Rural
Lifestyle by the Australian Valuation Property Classification Code; AVPCC) on
surrounding Farming Zone in both LGAs.
The identification of threatened species based upon the Environmental Protection
Biodiversity Conservation Act for the WCC and CSC LGAs.
The area of Ecological Vegetation Classes in the WCC and the CSC LGAs.
Key Findings of a Strategic Review of the Planning Schemes in the Warrnambool City
Council and Corangamite Shire Council Local Government Areas
Both the WCC and CSC Planning Schemes (PS) were reviewed in relation to the
implementation of state provisions (the State Planning Policy Framework; SPPF) and their
local provisions (Local Planning Policy Framework) in respect to the level of protection each
Scheme offers to the planned and unplanned use and development (conversion to other uses
and fragmentation) of agricultural lands within their respective jurisdictions.
Both schemes generally reflect the various elements of the SPPF as they apply to agricultural
land use and development. They do this by including a range of Local Strategies and Policies
together with applying various Zone and Overlay provisions (including locally-applied
Schedules) in an effort to protect the integrity of, and associated uses permitted upon, their
respective agricultural lands.
In the case of the WCC PS, the Municipal Strategic Statement (MSS) presents as a coherent,
sequential and singular document. Within the MSS there is a clear set of themes running
throughout, each of which very well address the issues, strategies and objectives pertinent to
the topic, and each of which also link back to the Council Plan. However, the decision to
Page xi of 175
provide for the subdivision of land titles and/or the development of new dwellings on lots
within the Farming Zone (FZ) to/on a minimum area of 15ha (considerably below the
Victorian Planning Provisions (VPP) default of 40ha) occurred prior to the implementation of
the VPP in 1999. It remains unclear what the original intent was, or indeed, if it remains
relevant to this day. This means that it is difficult to determine the exact influence the current
scheme has in relation to the protection of agricultural lands of the City.
The CSC PS in its MSS is generally not a sequential document and contains multiple
instances of where issues, strategies and objectives are duplicated. While the critical planning
pathways concerned with the protection of agricultural land within the scheme are present,
the links through the scheme are not clear and need to be revisited to be effective.
Similar to the WCC PS, the relevant rural Zone and Overlay provisions of the CSC PS are
applied through the use of locally adapted Schedules and they appear to respond well to the
individual objectives as expressed in the MSS. Unlike the WCC PS, the CSC PS has for the
most part retained the VPP standard of a 40ha minimum for land in the FZ in relation to both
the subdivision of land titles and/or the development of new dwellings on lots.
Warrnambool City Council Local Government Area
The research clearly showed that the 15ha minimum for subdivision in the WCC LGA FZ
provided minimal incentives for either the prevention of further fragmentation or, at the other
end of the spectrum, the total free-marketing of agricultural land. It appears that this aspect of
the WCC LGA provision serves little purpose and does not relate to the state or local
strategies.
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The reality is that given the projected growth and development in the WCC LGA it is evident
that the current rural areas can no longer be viewed for purely agricultural production (i.e. the
use of the FZ is now quite multi-functional).
The total rural area should be subject to a comprehensive strategic plan that seeks to deliver
on three objectives.
1. Designate land that will be needed in the short, medium and foreseeable long term
for urban development. That process needs to include an assessment of the capacity of
the existing urban area to support more intensive urban development.
2. Evaluate whether any land in the FZ should retain that zone based on the pattern of
lot holdings and land use/development data that has been identified as needed for
future urban development. There is a case to be made that some, most or all of these
areas should have a zone like the Green Wedge applied to them because that is closer
to the role that they are playing.
3. Identify through the pattern of lot holdings and land use/development data whether
there are some areas that are functioning as rural residential or rural living, and would
be more appropriately zoned as Rural Living. This approach needs to note the general
line taken by the Department of Planning and Community Development (DPCD) in
considering rezoning proposals that the pattern alone is not a basis for rezoning to
Rural Living.
Page xiii of 175
Corangamite Shire Council Local Government Area
In respect to CSC LGA a different approach appears to be relevant. The MSS needs a far
better structure in terms of how it explains what it is trying to do in respect to rural land and
agriculture but the zone provisions need less attention. There is a need on the basis on the lot
pattern and holdings and land use/development data that has been identified to revisit the
suitability of zoning and zone provisions on the fringes of the major towns, in high amenity
landscape areas, along some of the major transport corridors (generally areas that have been
subject to using the planning scheme provisions for defacto rural living development).
Key Findings of the Strategic Research
Warrnambool City Council Local Government Area
Agriculture
While farm values in remote areas are primarily driven by the profitability of
agriculture, in areas close to cities values are influenced by the potential for
subdivision and sale for other uses (Murphy et al., 2009). This appears to be the case
in WCC LGA where the City has expanded over what was traditionally agriculturally
viable land.
Around 71% of agricultural land within the WCC LGA was identified as highly
versatile land. However, the scale of predictions does not confirm agricultural
versatility at individual sites. Nonetheless these predictions provide another layer of
strategic information to assist long-term planning efforts.
As the environmental factors used to assess the agricultural versatility of land within
WCC LGA do not appear to influence the pattern of expansion, economic factors may
Page xiv of 175
potentially be more important. These economic factors (e.g. land values) have been
explored in section 6 Rural Residential and Rural Living Development.
Across Victoria, there is a trend for a consolidation of farms, and the influence of
lifestyle blocks in the WCC FZ is likely to have a greater influence through
fragmentation and uses other than food and fibre production.
Tourism
The annual Premier Speedway and the Fun 4 Kids festival attract large numbers of
visitors to the Warrnambool region.
Logans Beach provides one of the most popular land-based whale viewing areas in
Victoria.
There is much potential to increase the visitor rates of game fishers to Warrnambool,
however significant upgrades of the launching infrastructure is required.
Tourism development is unlikely to have a measurable effect on WCC LGA
agricultural productivity as the 71 percent of the land is classed as very highly
versatile (see section 4.2.2). It will be difficult to attribute any decrease in agricultural
output from the WCC to tourism development. The output will be far more influenced
by climatic conditions, commodity prices and the types of agricultural ventures
undertaken.
Rural and Residential Living Development
A negative relationship between land parcel size and land value per square metre was
established.
Relationships were stronger when analysing the residential zones compared to the
agricultural zones.
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The current site value of the 60 parcels that the research identified as being eligible
for subdivision under the current planning scheme (i.e. greater than 30ha) is
AU$66,343,000. Applying the predictive model indicated the value of the land area
following subdivision would increase to AU$84,975,000.
This process virtually converted parcels with AVPCCs of 525 (Livestock Production
– Dairy Cattle), 530 (Mixed farming and grazing) and 561 (Vineyard) to AVPCCs of
100 (Vacant Residential Home Site/Surveyed Lot), 110 (Detached Home) and 151
(Miscellaneous Improvements on Residential Rural Land).
Urban land use is set to have the largest gain following the implementation of the
proposed growth boundaries. This is almost entirely at the expense of FZ, which is set
to have the largest loss in area.
Hotspot analysis for the WCC LGA indicated clustering of high-value land in the FZ
east of Allansford, along the eastern end of Hopkins Point Road, and north-west of
Dennington.
Clustering of low value parcels were identified by the hotspot analysis in the FZ north
of Merrivale, around Bushfield, and west of Rowans lane.
A large proportion of parcels greater than 30ha already have a dwelling on them.
The 15ha figure does not appear to be relevant when examining the demand curve
data (see Figure 15 and associated text).
Despite southwest Victoria being identified as a major milk producing region and
dairy farms being a prominent feature of the south west Victorian landscape, just two
of the 349 parcels analysed here were classified as AVPCC 525 (Livestock production
– Dairy cattle). Although this may superficially appear to underestimate the number
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of dairy farms in the study area, it is consistent with anecdotal reports/concerns of a
change in land use from farming to urban areas.
Obtaining reliable data on the location and extent of historical dairy enterprises to
quantify their loss is likely to remain a difficult process.
When considering the fragmentation of farmland and conversion to residential use, no
parcels in the WCC LGA FZ were classified as 117 (Residential Rural/Rural
Lifestyle). Properties described under this AVPCC include single dwellings on a
larger allotment (greater than 1 ha and less than 20 ha) in a rural, semi-rural or
bushland setting where primary production uses and associated improvements are
secondary to the value of the residential home site use and associated residential
improvements.
Currently there appears to be no available information on the proportion of lifestyle
properties in the study area (i.e. AVPCC 117 Residential Rural/Rural Lifestyle). It is
required, if for no other reason, to assess if the FZ as a whole is delivering what the
Planning Scheme intends. The strategic purpose(s) of the FZ include providing the
use of land for agriculture, encouraging the retention of productive agricultural land,
and ensuring that non-agricultural uses, particularly dwellings, do not adversely affect
the use of land for agriculture.
Future work quantifying this land use will be of assistance to strategic planners and
policy-makers. We do not believe this would entail a large investment to deliver this
outcome as the framework for this classification already exists.
Of the 165 people who participated in the survey 60 percent chose a future where
there was to be no change in the living density of people as their preferred option for
Warrnambool’s urban development.
Page xvii of 175
Biodiversity
There are 17 threatened species listed under the Environment Protection and
Biodiversity Conservation Act 1999.
There are 14 Ecological Vegetation Classes present in the WCC LGA and cover
approximately 7 percent of the land.
The open spaces in the structure plan provide a significant opportunity to enhance
biodiversity values within the WCC LGA.
The ESO2 has gaps on the Merri near Ponting Drive.
The Merri River and Hopkins River estuaries are not covered by any environmental
overlay.
The coastal wetlands ESO4 have no decision guidelines to assist decision making
UFZ vs a proposed PCRZ.
Russell’s Creek, Mamm wetland reserve and Tozer are not covered by an ESO.
While there are existing open spaces that contain remnant native flora (e.g. South
Warrnambool and Maam Wetlands), other areas would require considerable
rehabilitation (Merri River north of the cattle yards near Caramut Road).
Many of these areas are low lying and subject to regular flooding.
While revegetation with native indigenous flora is encouraged (along with a thorough
assessment and ongoing monitoring), the WCC needs to decide if a flood zone is
appropriate to rehabilitate.
The existing open spaces are linked by the Merri and Hopkins Rivers which could
provide corridors for movement of native species between patches and provide
Page xviii of 175
opportunities for restoration projects whilst maximising biodiversity outcomes at the
landscape scale.
Corangamite Shire Council Local Government Area
Agriculture
The CSC LGA contributes to approximately 19 percent (M$479) of Victoria’s
agricultural production
Agriculture, forestry and fishing are the predominant industries and employ
approximately 32.5 percent of the working population within the CSC LGA
The south of the CSC LGA (i.e. below the Princes Highway) have the advantage of
fertile volcanic soils and reliable rainfall,
The flat plains in northern regions of the LGA provide ideal conditions for cropping
and sheep farming.
Given the importance of agriculture to the local economy, the preservation of
agricultural land is necessary for the sustainable development of primary productivity
within the CSC LGA.
Based on the mapping undertaken in this project, pasture was found to dominate 49
percent the CSC, and was mainly confined to south of the Princes Highway
North of the Princes Highway crops dominated the landscape.
Remnant vegetation covered approximately 11 percent of the LGA and was confined
to the south-eastern regions and along the coastal fringe.
The predictive modelling showed that highly suitable dairy is currently confined to
regions south of the highway.
Page xix of 175
The 2040 predictions indicate a contraction of suitable dairy land.
The predictive model for suitable cropping currently favours regions north of the
Highway between Lismore and Skipton.
The 2040 prediction indicates a southward trend of suitable cropping land.
Accounting for the southerly expansion of suitable cropping areas, there may be some
conflict with dairy enterprises. Of particular interest are the parcels within an
approximate 10km radius of Lake Purrumbete.
The eventual fate of these parcels will be decided upon economic realities (e.g.
commodity prices) and geological constraints (e.g. the nature of the Stony Rises area
does not lend itself to large scale cultivation of crops).
The scale of predictions does not confirm agricultural versatility at individual sites.
Nonetheless the predictions generated for landuse map, cropping and dairy suitability
provide another layer of strategic information to assist long-term planning efforts.
Tourism
Tourism forms a significant and growing part of the shire’s economic base.
Many of the tourism attractions in the shire embrace the aesthetic appeal of the natural
environment.
Currently visitation to the CSC LGA is dominated by day-trippers – converting these
to overnight stays is a strategic challenge.
The Tourism Opportunities Study provides a comprehensive overview and analysis of
the state of play in the CSC LGA, and provides a valuable resource.
Page xx of 175
Rural and Residential Living Development
A negative relationship between land parcel size and land value per square metre was
established. These relationships were stronger when analysing the residential zones
compared to the agricultural zones.
A total of 1402 parcels were identified as eligible for subdivision (i.e. greater than
80ha)
In the south of CSC LGA there is a high degree parcel fragmentation, while in the
north land is more homogenous (i.e. larger adjacent larger parcels).
Hotspot analysis indicated clustering of high-value land around the major towns in the
south (e.g. Terang, Camperdown, Timboon).
Clustering of low value parcels were observed north of Princes Hwy.
Approximately 3 percent of tenants own land in holdings greater than 500ha in the
FZ, with the larger holdings being mostly confined to the north of the CSC LGA.
A similar spatial pattern was evident for holdings by tenant (i.e. confined to the north)
and approximately 98 percent of tenants held less than 10 parcels.
It is recommended that the Councils consider drafting documents that provide greater
policy guidance around subdivision, particularly small lot excisions and proposed
excisions containing existing dwellings within Rural Zones.
Biodiversity
There are 66 threatened species in the CSC LGA that are listed under the Environment
Protection and Biodiversity Conservation Act 1999.
Page xxi of 175
The mapped EVCs covered approximately 15 percent of the CSC LGA and were
dominated by Water Body – Salt, Lowland Forest, Herb-rich Foothill Forest and
Stoney Rises Woodland.
The Corangamite Biodiversity Asset Mapping project completed in late 2010 by the
Department of Sustainability and Environment provides an up-to-date resource
inventory of biodiversity.
Warrnambool City Council and Corangamite Shire Council Local Government Areas
Combined
Energy Production
Wind, wave and gas are likely to see further investment in the future; however they
face a variety of challenges (e.g. economic conditions, local resistance, suitable
locations).
Given the complex and involved process required to see a project to fruition, it is
beyond the scope of this report to nominate specific locations of future energy
developments.
It is likely that future energy developments (both renewable and non-renewable) will
need to consider proximity to existing infrastructure.
Buffer distances to property boundaries and to sensitive uses (e.g. occupied dwellings
and perceived impacts upon property values) will need to be considered.
Given the high environmental values outlined in section 7, potential landscape and
biodiversity impacts need to be considered.
Perceived impacts on health to humans and livestock. For example, noise is a
contentious issues, particularly with wind farms.
Climate Change
Page xxii of 175
Climate change is unlikely to have a measurable effect on WCC LGAs agricultural
production due to its relatively small size (120 km2) and location (south west Victoria
where the impacts of climate change are predicted to be minimal).
The impacts of climate change will likely be felt more in the CSC LGA, particularly
in the northern areas.
The predictions of more extreme weather events (e.g. storm surges and flooding) are
more likely to affect WCC, in particular South Warrnambool. In the CSC LGA low
lying parts of Port Campbell and Princetown are at most risk. Most of the coastline in
the CSC LGA comprises high cliffs; however these will still be exposed to the erosive
effects of the Southern Ocean, albeit acting a much longer timeframe with less
infrastructure at risk.
Page xxiii of 175
List of Figures
Figure 1. Locations of Warrnambool City Council (a) and Corangamite Shire Council (b)
Local Government Areas in south-west Victoria, Australia. ................................................... 34
Figure 2. Summary of Initial Analysis of the Returned Questionnaires .................................. 71
Figure 3. Strategic Issues from Figure 2 Aggregated into Six Major Strategic Issues. NB:
Population Represents an Aggregation of Four Issues Related to Population: a Growing
Population (n=3); a Sustainable Population (n=2); Overpopulation (n=1); and Population
Distribution (n=1) .................................................................................................................... 72
Figure 4. Agricultural Versatility in the Warrnambool City Council Local Government Area.
.................................................................................................................................................. 83
Figure 5. Ground truth Locality Used in the Mapping of Land Use Classes within
Corangamite Shire Council Local Government Area. ............................................................. 88
Figure 6. The 2008 LandSat 5TM Image used in the Mapping of Land Use Classes within
Corangamite Shire Council Local Government Area. ............................................................. 89
Figure 7. The 2011 LandSat 5TM Image Showing Cloud Cover and Shadows for
Corangamite Shire Council Local Government Area. ............................................................. 90
Figure 8. Current Map of Land Use in Corangamite Shire Council Local Government Area 93
Figure 9. Localities Dairy Producers Obtained from Dairy Australia in the Corangamite Shire
Council Local Government Area. ............................................................................................ 95
Page xxiv of 175
Figure 10 MAXENT Predictions of Dairy Suitability under Current Climate conditions (a)
and Dairy Suitability under 2040 Climate (b). Water Bodies are shown in
Black....................................................................................................................................... 96
Figure 11.Localities of Cropping Obtained from Ground truthing in the Corangamite Shire
Council Local Government Area ............................................................................................. 98
Figure 12 MAXENT Predictions of Crop Suitability under Current Climate conditions (a) and
Crop Suitability under 2040 Climate (b). Water Bodies are shown in Black......................... 99
Figure 13. Theoretical Market Model Indicating the Efficient Allocation of Land. MBRes =
Marginal Benefit for Residential Land. MBAg = Marginal Benefit for Agricultural Land. .... 109
Figure 14. The Efficient Allocation of Land Based upon Classification of Parcels Using
Australian Valuation Property Classification Codes for Warrnambool City Council Local
Government Area (A= 10.215 approximately 2.730 ha). ...................................................... 110
Figure 15. Current Parcels Sizes within the Warrnambool City Council Local Government
Area. Parcels reater than 30 ha are Potential Candidates for Subdivision According to
Prevailing Farming Zone Schedule. ....................................................................................... 112
Figure 16. Vacancy Rate of Parcels within the Farming Zone in Warrnambool City Council
Local Government Area. Parcels greater than $70,000 Capital Improvement based on the
2010 Australian Valuation Property Classification Codes are Identified as Occupied in the
Farming Zone Schedule. ........................................................................................................ 113
Figure 17. Hotspot Analysis of Land Value for the Farming Zone in the Warrnambool City
Council Local Government Area ........................................................................................... 115
Page xxv of 175
Figure 18. Urban Expansion Scenarios for 2035 with an Estimated Population of 45,045. Pink
shows Projected Urban Footprint if a Density of 7 People per Hectare is Maintained
(Scenario 1). Blue Indicates the Current Urban Footprint which can be Maintained for a
Population 45,045 if Densities are Increased to 10 People per Hectare (Scenario 2). .......... 118
Figure 19. The Efficient Allocation of Land Based upon Classification of Parcels using
Australian Valuation Property Classification Codes for Corangamite Shire Council Local
Government Area. a) North of the Princes Highway (A= 10.8approximately 4.9 ha). b) South
of the Princes Highway (A= 10.8 approximately 4.9 ha). ...................................................... 124
Figure 20. Current Parcels Sizes within the Corangamite Shire Council Local Government
Area. Parcels greater than 40 ha are Potential Candidates for Subdivision According to
Prevailing Farming Zone Schedule and 60 ha for the Rural Conservation Zone. ................. 125
Figure 21. Hotspot Analysis of Land Value for the Farming Zone in the Corangamite Shire
Council Local Government Area. a) Analysis Including Lifestyle Blocks (117); b) Analysis
Excluding Lifestyle (117) Blocks. ......................................................................................... 127
Figure 22. Tenants by Holding Area in the Farming Zone for the Corangamite Shire Council
Local Government Area. ........................................................................................................ 129
Figure 23. Number of Holdings by Tenants in the Farming Zone for the Corangamite Shire
Council Local Government Area. .......................................................................................... 130
Figure 24. Subdivision Applications in Warrnambool City Council Local Government Area
................................................................................................................................................ 136
Page xxvi of 175
Figure 25. Dwelling Development Applications in Warrnambool City Council Local
Government Area ................................................................................................................... 137
Figure 26. Corangamite Shire Council Local Government Area Subdivision Applications . 140
Figure 27. Dwelling Development Applications in Corangamite Shire Council Local
Government Area ................................................................................................................... 143
Figure 28. Environmental Overlays and Ecological Vegetation Classes for Warrnambool City
Council Local Government Area. Legend descriptors are given on page 151 ...................... 152
Figure 29. Maps of High Biodiversity (a) and Threatened Species (b) across the Corangamite
Shire Council Local Government Area. Maps are Based on Spatial Data Obtained from the
Biodiversity Asset Mapping Project Completed by the Department of Sustainability and
Environment. .......................................................................................................................... 159
Page xxvii of 175
List of Tables
Table 1. Warrnambool City Council Local Government Area Planning Scheme – Objectives
of the Locally Applied Rural Zones, Overlays and specific Land Use Planning Policies. ...... 45
Table 2. A Review of the Warrnambool City Council Local Government Area Planning
Scheme in Relation to the Rural Zones, Agriculture and the Conversion of Land Uses. ........ 47
Table 3. Corangamite Shire Council Local Government Area Planning Scheme-Objectives of
the Locally Applied Rural Zones, Overlays and specific Land Use Planning Policies. .......... 55
Table 4. A review of the Corangamite Shire Council Local Government Area Planning
Scheme in Relation to the Rural Zones, Agriculture and the Conversion of Land Uses. ........ 58
Table 5. List of Stakeholder Representatives used in the Project Steering Committee ........... 70
Table 6. Consultation Activities Undertaken Throughout the Project. .................................... 76
Table 7. Agricultural Value to Warrnambool City Council Local Government Area. Data
based on 2006 Census from Australian Bureau of Statistics ................................................... 82
Table 8. Description of Agricultural Versatility Classes used in the Warrnambool City
Council Local Government Area ............................................................................................. 84
Table 9. Area Cover for Agricultural Versatility Classes in Warrnambool City Council
Corangamite Shire Council Local Government Area .............................................................. 84
Table 10. Agricultural Value to Corangamite Shire Council Local Government Area. Data
based on 2006 Census from Australian Bureau of Statistics ................................................... 86
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Table 11. Description of Mapped Land Use Classes. .............................................................. 87
Table 12. Error Assessment of Land Use Classes for Corangamite Shire Council Local
Government Area, including the User’s and Producer’s Accuracies. The User’s Accuracy is
Representative of the Probability that a Predicted Map Pixel Actually Represents that
Category on the Ground. Producer’s Accuracy (in Italics) Represents the Error Probability of
a Reference Pixel being Correctly Predicted.. ......................................................................... 92
Table 13. Area Cover for Land Use Classes in Corangamite Shire Council Local Government
Area .......................................................................................................................................... 94
Table 14. Cross-tabulation Zone Transition Matrix for 1999 (t1) and Planned Conversion
greater than 2009 (t2). Persistence of the Zones can be Read Along the Diagonal. All Values
are Percentages....................................................................................................................... 107
Table 15. Summary of Zone Transitions for 1999 (t1) and Planned Conversion greater than
2009 (t2). ................................................................................................................................ 107
Table 16. Number of Parcels within the Warrnambool City Council Local Government Area.
Parcels greater than 30 ha are Potential Candidates for Subdivision According to Prevailing
Farming Zone Schedule. ........................................................................................................ 111
Table 17. Number of Vacant Parcels within the Farming Zone in Warrnambool City Council
Local Government Area. Parcels greater than $70,000 Capital Improvement based on the
2010 AVPCCs are Identified as Occupied in the Farming Zone Schedule. .......................... 113
Table 18. Data used to Map the Extent of the Urban Footprint. ............................................ 118
Page xxix of 175
Table 19. Results from Survey of Warrnambool City Council Local Government Area
Residents in Response to Two Future Urban Expansion Scenarios ...................................... 119
Table 20. Number of Parcels within the Corangamite Shire Council Local Government Area.
Parcels greater than 40 ha are Potential Candidates for Subdivision According to Prevailing
Farming Zone Schedule and 60 ha in the Rural Conservation
Zone.......................................................................................................................................127
Table 21. Tenants by Holding Area in the Farming Zone for the Corangamite Shire Council
Local Government Area. ........................................................................................................ 131
Table 22. Number of Holdings by Tenants in the Farming Zone for the Corangamite Shire
Council Local Government Area...........................................................................................132
Table 23. Number (and Outcomes) of Planning Permit Applications Lodged in both Local
Government Areas During the Period 2006 to 2011. ............................................................ 134
Table 24. Policies and Strategies Relating to the Conservation and Management of
Biodiversity........................................................................................................................... 145
Table 25. Area Contained within each Ecological Vegetation Class within Warrnambool City
Council Local Government Area. .......................................................................................... 153
Table 26. Threatened Species Listed under the Environment Protection and Biodiversity
Conservation Act 1999 for Corangamite Shire Council Local Government Area. C =
Critically Endangered, E = Endangered, V = Vulnerable, CD = conservation dependent.
Based on data from the Australian Natural Heritage Assessment Tool (ANHAT;
http://www.environment.gov.au/heritage/anhat/index.html). ANHAT Check Taxonomic
Page xxx of 175
Classifications Before Species are Included in Database. As This is a Rigorous Process That
Takes Time, Not All Species Are Covered in the Table Below............................................155
Table 27. Area Contained within Each Ecological Vegetation Class within Corangamite Shire
Council Local Government Area. .......................................................................................... 157
Table 28. Threatened Species Listed under the Environment Protection and Biodiversity
Conservation Act 1999 for Corangamite Shire Council Local Government Area. C =
Critically Endangered, E = Endangered, V = Vulnerable, CD = conservation dependent.
Based on data from the Australian Natural Heritage Assessment Tool (ANHAT;
http://www.environment.gov.au/heritage/anhat/index.html). ANHAT Check Taxonomic
Classifications Before Species are Included in Database. As This is a Rigorous Process That
Takes Time, Not All Species Are Covered in the Table Below ............................................ 160
Table 29. Change in Agricultural Production in Victoria Relative to 1990 Production Values.
Adapted from Gunasekera et al., (2007). ............................................................................... 167
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1 Introduction
1.1 Project Background
The southwest of Victoria is a region rich in arable land with reliable rainfall, secure surface
water storages and large reserves of groundwater. These assets make it highly attractive for a
variety of enterprises. In addition to a broad agricultural production base, the southwest also
boasts numerous natural attractions and sites of ecological and geological significance (e.g.
Port Campbell National Park; Kelly Swamp wetland; Kanawinka Global Geopark). With
many competing land uses, the region has undergone major land use transitions since
European colonisation.
Systematic transitions have been well-documented in southwest Victoria, particularly since
1995 (Ierodiaconou et al., 2005; Versace et al., 2008). The emergence of plantation hardwood
forestry, southerly expansion of dryland cropping and intensifying dairy production are such
examples. These changes in the landscape have continued to raise questions around what will
be the best way to utilise land and water resources to deliver long-term sustainability to the
region whilst maintaining environmental values (Benyon 2002; Versace et al., 2008).
Generally in southwest Victoria, land suitable for development, particularly along the coastal
strip, is scarce and competition is intense between different activities and land uses. This has
led to increased development pressures development pressures on land requiring
consideration of risks such as land slip, flooding and potential impacts of increasing climate
variability.
The identity and character of existing communities also needs to be taken to account when
prioritising planning alternatives. Based on projections from the 2006 Australian Bureau of
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Statistics (ABS) census, population in the Corangamite Shire Council (CSC) Local
Government Area (LGA) is forecast to rise from 17,171 in 2006 to 17,884 in 2026. This
population growth is projected to be accompanied by an increase in households from 6,850 in
2001 to 7,175 in 2031. Preservation of arable land is also very significant given the CSC
LGAs high rate of employment in the agricultural sector and value-adding industries. In
Warrnambool City Council (WCC) LGA the population is forecast to increase from 31,501 in
2006 to 39,229 in 2026 and households to increase from 11,676 in 2001 to 19,571 in 2031
(ABS, 2006).
The Warrnambool and Corangamite Land Suitability Decision Making Framework Project is
a Victorian Local Sustainability Accord Project funded by the CSC, the Department of
Sustainability and Environment, and the WCC. Deakin University have been engaged as the
research partner and have also provided funding towards the project. The Project was
developed with the objective to establish a land suitability and decision-making framework
for WCC and CSC LGAs that can be applied to improve the basis for regional and local
planning. The Project aims to improve approaches to regional planning needs, to find ways to
preserve highly productive agricultural land, protect and enhance the environment, whilst
supporting sustainable regional development and settlement sustainability.
1.2 Warrnambool City Council Local Government Area Background
The WCC is a LGA that covers an area of approximately 12,000 hectares, and is located
approximately 260 km southwest of Melbourne on the Princes Highway. It provides a direct
road link to Adelaide, Geelong and Melbourne. Warrnambool is the principal service centre
for south-western Victoria and forms the western gateway to the Great Ocean Road Region
(Figure 1). The City of Warrnambool is centred on the old city core which is located south of
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the Princes Highway. The city core is formed by a grid pattern with significant heritage
buildings and precincts, and strong landscape boulevards planted with Norfolk Island Pines.
Due to the severity of onshore winds the city’s development led to an urban form that tended
to turn its back on the coast, developed areas are generally set back from the coastline. North
of the Princes Highway, there is a range of subdivision styles responding to the terrain,
watercourses and main roads. Drainage issues have also influenced the development of
certain locations. The smaller satellite townships of Allansford and Dennington have
developed in a linear fashion and each has their own identity. Woodford and Bushfield are
smaller settlements offering a relaxed rural lifestyle on the northern boundary of the council.
1.3 Corangamite Shire Council Local Government Area Background
The CSC is a LGA in the south-west of Victoria, Australia. Covering an area of
approximately 460000 hectares, it is located approximately 120 km from Melbourne. The
CSC extends from the Southern Ocean in the south to the township of Skipton 120 km to the
north (Figure 1). Prior to European settlement in the early 1800s, it is believed indigenous
Australian’s inhabited this area for around 50,000 years (Corangamite, 2009).
Its major towns are Camperdown, Terang, Cobden, Timboon, Port Campbell, Lismore,
Derrinallum, and Skipton. It was formed in 1994 from the merger of the Town of
Camperdown, Shire of Hampden, Shire of Heytesbury, and parts of the Shire of Otway, Shire
of Mortlake and Shire of Warrnambool.
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Figure 1. Locations of Warrnambool City Council (a) and Corangamite Shire Council (b) Local Government Areas in south-west
Victoria, Australia.
a) b)
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2 Strategic Planning Framework
2.1 Strategic and Statutory Land Use Planning in Victoria
Strategic and statutory land use planning in Victoria involves implementing and
administering the Planning and Environment Act 1987 and the provisions of the respective
planning scheme that applies to the particular LGAs.
It should be noted that the planning system is highly centralized in respect to overall strategic
and policy direction. There is standardisation of procedures and the Minister for Planning has
extensive approval and intervention powers.
State policies are set to apply to the whole of Victoria and all local strategies, policies and
planning schemes are required to be consistent with and implement them. Each local
government is required to develop local strategies to reflect their local circumstances and
ensure that their decision-making is consistent with the state and local strategies and policies.
Local governments as statutory Planning Authorities and Responsible Authorities are
required to undertake forward planning and administer their planning system under the
delegated authority of the Minister. Councils are required to utilise a standard set of
provisions (the Victoria Planning Provisions; VPP) to construct their planning scheme and to
choose relevant provisions and tools such as zones and overlays from a set of state standard
zones and overlays. Importantly in understanding the operation of the system all new
planning schemes and amendments to planning schemes are subject to the approval of the
Minister.
The reality of such a system and its administration is that it tends to produce an ongoing
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tension between the centralised control and direction of the Minister for Planning and the
supporting Department of Planning and Community Development (DPCD) on the one hand
and the day to day administration by the locally elected Council on the other. Evidence of this
tension can be experienced firsthand by observing any one of the hearings conducted on a
regular basis by Planning Panels Victoria. In essence the Council is required to determine a
locally responsive strategic approach to planning and managing land use planning and
development but within a framework of centrally set strategy and policy.
The potential for tension within this framework is further heightened by its application and
implementation in rural areas and communities at a time of substantial social change, a range
of demographic forces, changing and volatile economic settings and environmental
imperatives and regulation (e.g. Rogers and Jones 2006). Understandably these forces are
often seen to play out in rural areas so that state policies and directions are often considered
to impinge on local concerns. Responses that are tailored by and for local circumstances often
appear to be lost in a myriad of centrally imposed controls and regulations. No doubt, if left
to their own devices, many local rural communities and their Councils would want to shape
their planning scheme considerably differently to that which is effectively imposed on them
by the state.
In rural areas the likelihood for conflict between the state and local level is increased because
the overall state strategies, policies, provisions and regulations are often seen at the local
level to be complex and onerous and often appear to be overlapping between various arms of
the state government and between state and local interests. Recent examples of this conflict
are detailed in many of the submissions referred to by Underwood et al., (2011) in the
Victorian Planning System Ministerial Advisory Committee Initial Report.
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In respect to rural and agricultural Victoria at the state level there is a strong theme expressed
through the State Planning Policy Framework (SPPF), which is incorporated into all local
planning schemes, that rural Victoria contains resources (finite and renewable) that need to be
protected and conserved and that land use conflicts are to be avoided or at least managed.
State policy also provides a framework for utilizing the resource base for the benefit of all
Victorians on the basis of sustainable development and net community benefit. These overall
goals in themselves are rarely in conflict with similar ambitions at the regional and local
level, it is their translation into a set of regulatory requirements that generates conflicts.
The implementation of these goals and ambitions and the overall framework are often in
conflict at the local level and particularly in rural settings. An example pertinent to this
review is WCC LGA, a growing regional city ringed by high quality productive agricultural
land. The availability to produce agricultural commodities on this land, which in turn support
local industries and employment, and in effect an expanding local economic base, could be
placed at risk by further expansion of its urban footprint. Conversely not providing for the
future urban expansion of the City of Warrnambool could curb population growth, and in turn
restrict job opportunities and investment.
The local circumstances are important in the application of state policy and in devising how
state-wide strategies and directions and statutory planning tools will be applied and
implemented at the local level.
The Planning and Environment Act explicitly requires that environmental effects and the
effects on the environment be given due regard and consideration in the preparation and
administration of planning schemes and in the determination of planning permit applications.
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Importantly increasing emphasis has been given in the last decade to social and economic
effects, supporting and managing population growth, planned urban development, and
facilitating jobs and investment in rural and regional Victoria. The Planning and
Environment Act sets out the economic and social effects may be given consideration where
relevant.
It is highly likely due to a current major review of the planning zones by the Minister of
Planning) that later this year or early next year there will be substantial changes made to the
content and operation of a number of zones within the VPP which will therefore mean that
these zones change in all planning schemes across the state that are utilizing these zones.
These proposed Ministerial changes have the capacity to affect the way zones in both the
WCC and CSC PSs are applied and administered. It is for this reason that any
recommendations made in this report concerning the amendment of zones in either Scheme
need to be considered against any future outcomes of the proposed zone changes that the
Minister for Planning has foreshadowed.
Furthermore, both municipalities are currently engaged in a major regional planning process:
the 'Great South Coast Regional Growth Plan'. The objectives of this plan are to:
Identify important economic, environmental, social and cultural resources to be
preserved, maintained or developed.
Provide direction for accommodating growth and change including residential,
employment, industrial, commercial, agricultural and other rural activities.
Show broadly which areas of land can accommodate growth and which are to be
maintained, including consideration of the infrastructure needed to support growth or
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change.
Help Councils by streamlining planning policy as well as potentially reducing the
amount of strategic work councils have to do.
It is expected a draft Great South Coast Regional Growth Plan will be released in mid 2013.
The overall approach taken in this review and the preparation of this report is to seek to
ensure that the state-wide interests are implemented and accommodated, but that the local
circumstances are clearly reflected in proposals and recommendations. An example of this is
the realization and emphasis on preparing separate analyses of the Warrnambool and
Corangamite Planning Schemes and recommending quite different approaches to reflect their
respective circumstances. In fact the more study and analysis undertaken of each local
government area and their needs in respect to rural planning agendas the more evident are the
differences between them and consequently the strategic and statutory land use planning
responses for each need to be fundamentally different.
2.2 State Policy and Strategy in Respect to Rural Areas and Agricultural
Land Use and Development
This section of the report provides a summary of the state strategy and policy regarding rural
areas, agriculture and other relevant primary industries.
For a complete picture the reader should consult the SPPF found in all planning schemes and
the relevant Planning Practice Notes at the DPCD website.
The overarching state objective in terms of the management of the state’s natural resources is
for planning to assist in the conservation and wise use of natural resources including energy,
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water, land, stone and minerals to support both environmental quality and sustainable
development.
Included in this wide-ranging objective is a specific set of policies about the protection of
agricultural land with the particular objective to protect productive farmland which is of
strategic significance in the local or regional context. To achieve this the state policy
requires the following strategies; ensure that the unplanned loss of productive agricultural
land due to permanent changes of land use and take into consideration regional, state and
local, issues and characteristics in the assessment of agricultural quality and productivity,
and ensure that the permanent removal of productive agricultural land from the State's
agricultural base must not be undertaken without consideration of its economic importance
for the agricultural production and processing sectors.
In respect to rural productivity, that means to manage land use change and development in
rural areas to promote agriculture and rural production. This will be achieved by a number
of strategies including; prevent inappropriately dispersed urban activities in rural areas, and
limit new housing development in rural areas.
The SPPF requires that agricultural land use be sustainable. The strategies to achieve this
include: ensure agricultural and productive rural land use activities are managed to maintain
the long-term sustainable use and management of existing natural resources. Encourage
sustainable agricultural and associated rural land use and support and assist the
development of innovative approaches to sustainable practices.
Rural land use production does not only relate to agriculture. Forestry, for example, is an
important activity and the SPPF promotes the establishment of softwood and hardwood
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plantations and the identification of areas which may be suitably used and developed for
plantation timber production.
Rural land use and development must also assist the protection and, where possible,
restoration of catchments, waterways, water bodies, groundwater, and the marine
environment.
In 2004, new zones for use in planning schemes for rural Victoria were introduced into the
VPP that were designed to: discourage ad hoc and incompatible use and development and
recognise the importance of farming as an industry, and the changing nature of farming. In
particular the new zones recognised that farming is becoming more industrialised, more
intensive and that farms are becoming bigger to achieve the economies of scale needed for
investment and to maintain productivity. There was also recognition that there is more
competition for rural land and that there is a renewed interest in part-time small-scale
farming and that more people are living in rural areas for lifestyle reasons not related to
farming.
In releasing the new rural zones the DPCD noted that sound strategic planning for rural
areas is essential and that the use and development of land in rural areas needs to fit into the
overall strategic planning of the municipality. In applying a new rural zone or in making
adjustments to an existing rural zone the DPCD noted such action should be underpinned by
clearly expressed planning policies in the planning scheme.
In deciding which rural zone should apply, the DPCD advised that the zone should support
and give effect to the SPPF and that the zone should broadly support all policy areas in the
Municipal Strategic Statement (MSS) (for example, economic, housing, environmental and
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infrastructure policy). In particular the rationale for applying the zones should be clearly
discernible in the LPPF. It was particularly noted that the existing size or pattern of
allotments in an area should not be the sole basis for deciding to apply a particular zone. For
example, it is not appropriate to decide that the Rural Living Zone should be applied to an
area simply because it comprises small lots.
DPCD noted that the planning scheme should ensure that reasonable opportunities are found
for rural residential development as part of providing for housing diversity and choice.
However the Department noted that rural residential development can have costs
significantly higher than standard residential development and that conflict can emerge with
agricultural activities.
It should be noted that there is a widely held view that the state standard set of rural zones are
inadequate in terms of number and in what they are trying to deliver. It has frequently been
said that with a limited set of zones to choose from a ‘one size fits all’ approach particularly
to issues such as the diversity of highly productive farming land, the different needs of
production types and commodities, the differences between irrigation and dryland, and the
different land settlements and lot patterns is promoted and supported. There is a widely held
view that having only one farming zone and using a set of minimum subdivision sizes as the
differentiating element is simplistic and of little value.
The zone choices available are Farming, Rural Conservation, Rural Living and Rural
Activity. In summary the purposes of these zones are:
The main feature of the Farming Zone (FZ) is its recognition of agriculture as the
dominant land use in rural Victoria. The purpose of the zone articulates the
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encouragement of agriculture as a future sustainable land use. Most agricultural uses
do not need a planning permit. Agricultural uses that require a permit will need to
consider the environmental effects and potential land use conflicts with surrounding
agricultural uses.
The Rural Activity Zone (RAZ) is designed to be applied to selected areas where
agricultural activities and other land uses can co-exist. A wider range of tourism,
commercial and retail uses may be considered in the zone. Agriculture has primacy in
the zone, but other uses may be established if they are compatible with the
agricultural, environmental and landscape qualities of the area.
The Rural Conservation Zone (RCZ) will protect and enhance the natural
environment for its historic, archaeological, scientific, landscape, faunal habitat and
cultural values. Agriculture is allowed in the zone provided it is consistent with the
environmental and landscape values of the area.
The Rural Living Zone (RLZ) provides for residential use in a rural environment.
While the zone provides for agricultural activities the amenity of residential living
must be protected.
It is widely accepted that the RAZ is confusing, rarely applied and in need of revision, and
that the RCZ has not been supported by rural communities who see it as intrusive and anti-
farming and that the DPCD has been anti the use and application of the RLZ and has
frustrated many Councils who have sought to use it.
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2.3 Summary of Rural Zone Areas in the Warrnambool City Council Local
Government Area
This section summarises the use and implementation of state strategy and policy in the MSS
of the planning scheme and use of policies, zones and overlays from the VPP in the planning
scheme.
Table 1 sets out the Rural Zones and Overlays applied in the WCC LGA PS from the suite
available in the VPP and the Objectives of the Locally Applied Rural Zones, Overlays and
specific Land Use Planning Policies.
Table 2 provides a review of the WCC LGA PS in relation to the application of the rural
zones, approaches to agriculture and the conversion of land use and developments
(dwellings) in rural areas.
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Table 1. Warrnambool City Council Local Government Area Planning Scheme –
Objectives of the Locally Applied Rural Zones, Overlays and Specific Land Use
Planning Policies.
Zones Key Objectives RLZ
Schedule
Allow for a reduction in the minimum (VPP – 8 ha) subdivision area:
All land – 4 ha
Plummers Hill Road (except permit P3885) – 1 ha
Logans Beach/Hopkins Point Road – 0.6 ha (minimum) 1 ha (average)
Allow for a reduction in the minimum (VPP – 8 ha) area for which no permit
is required to use land for a dwelling:
All land – 2 ha
FZ
Schedule
Allow for a reduction in the minimum (VPP – 40 ha) subdivision area:
All land – 15 ha
Allow for a reduction in the minimum (VPP – 40 ha) area for which no permit
is required to use land for a dwelling:
All land – 15 ha
Overlays Key Objectives
To protect the natural and cultural values of the coast, and appreciate the
complex nature of biological and physical coastal processes
ESO
Schedule 2
To protect the natural, cultural and visual values of the Hopkins and Merri
Rivers, their tributaries, adjacent land and associated habitat corridors
ESO
Schedule 3
To protect the natural and cultural values of Lake Gillear and adjacent land
ESO
Schedule 4
To recognise and protect, geological, historic, botanical, zoological and scenic
values of the South Warrnambool Wetlands and their importance to local
Aboriginal culture
SLO
Schedule 1
To protect and enhance the scenic qualities of coastal hinterland areas
HO
Schedule
(numerous
rural)
To conserve and enhance heritage places of natural or cultural significance
DDO
Schedule
(numerous
rural)
To identify areas which are affected by specific requirements relating to the
design and built form of new development
DPO
Schedule 3
To require a development plan be submitted and approved by the responsible
authority prior to subdivision of rural land into more than two lots
EAO To ensure that potentially contaminated land is suitable for a use which could
be significantly adversely affected by any contamination
Policies Key Objectives 22.01-1 To ensure that all structures harmonise with the surrounding environment in
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Building
Construction
in Low
Density
Residential
and Rural
Living Zones
the rural living zone
22.01-2
Logans
Beach
To protect the whales from potential offshore impacts of development in the
Logans Beach area by limiting the extent and density of development
Policies
Key objectives
22.02-4
Steep Land
To ensure that the use and development of land with a greater than 20 percent
slope takes into account environmental constraints such as erosion and fire
hazards:
All land having a slope greater than 20 percent
22.02-5
Hilltop and
Ridgeline
Protection
To protect areas of environmental and visual significance from inappropriate
development and to limit development on prominent ridges and hilltops:
Any buildings and works on significant hilltops and ridgelines
22.02-6
Dams
To ensure that dams are designed and constructed in an appropriate place and
manner
22.02-7 Fire
Protection
Local Policy
To ensure that land use and development does not increase the level of fire
risk:
All land zoned Rural or Rural Living in the municipality
22.03-1
Industrial
Development
To encourage well planned industrial development throughout the
municipality:
All industrial development in Industrial and Rural Zones
22.03-2
Excisions of
Dwellings in
the Rural
Zone
To:
Ensure that the excisions of lots and dwellings in the Rural Zone is
consistent with the purposes of the zone
Limit the subdivision, use or development of land that will be
incompatible with the utilization of the land for sustainable resource
use
Ensure that dwellings which are excised or constructed on an excised
lot do not prejudice rural production activities and are appropriately
sited
22.04-2
Saleyards
Local Policy
To discourage residential subdivision or development within 300 metres of
the eastern boundary and 500 metres of the remaining boundaries of the
Saleyards:
The area of the City of Warrnambool that is within 500 metres of the
boundaries of the Saleyards, Caramut Road, Warrnambool
Page 47 of 175
Table 2. A Review of the Warrnambool City Council Local Government Area Planning
Scheme in Relation to the Rural Zones, Agriculture and the Conversion of Land Uses.
SPPF1 Policy LPPF MSS, Local
Policy, applied
Zone and/or
Overlay
(Date/Amend)
Discussion, Recommendations and
Suggestions for Further Analysis
11 Settlement 21.01
21.02
21.03
21.04
21.05
21.06
21.07
21.08
21.09
21.10
Municipal
Profile
(7-12-2006/C43)
Key Influences
(7-12-2006/C43)
Vision –
Strategic
Framework
(7-12-2006/C43)
Objectives –
Strategies –
Implementation
(7-12-2006/C43)
Housing
(7-12-2006/C43)
Environment
(7-12-2006/C43)
Economic
Development
(24-06-
2010/C63)
Infrastructure
(7-12-2006/C43)
Monitoring and
Review
(7-12-2006/C43)
Reference
Documents
The Municipal Strategic Statement
(MSS) as contained within the
Warrnambool Planning Scheme
(WPS)
Pursuant to Clause 20.01 of the
Victoria Planning Provisions (VPP):
The Municipal Strategic Statement
(MSS) is a concise statement of the key
strategic planning, land use and
development objectives for the
municipality and the strategies and
actions for achieving the objectives. It
furthers the objectives of planning in
Victoria to the extent that the State
Planning Policy Framework is
applicable to the municipality and
local issues. It provides the strategic
basis for the application of the zones,
overlays and particular provisions in
the planning scheme and decision
making by the responsible authority.
The MSS provides an opportunity for
an integrated approach to planning
across all areas of council and should
clearly express links to the corporate
plan.
In attempting to meet with the above
definition, the MSS as contained
within the WPS opens with a succinct
and logically sequenced 21.01
Municipal Profile. The body of the
text in this sub-section of the MSS is
contained under a series of sub-
headings and includes two instances
1 State Policy not directly related to this review has been omitted.
Page 48 of 175
(22-07-
2010/C67)
where the topic of this review receives
attention: Housing ‘…there is a need to
provide adequate buffers between
incompatible land uses’, and Economic
Development:
Rural land in the municipality forms
part of the highly productive Western
District. The significant processing
and agricultural servicing facilities
located in Warrnambool are of
advantage to local primary producers
and a source of local employment. The
preservation of agricultural land in
lots or holdings which can sustain and
provide for efficient and effective
production is necessary to sustain the
agricultural economy of the area, as
well as the industries which rely on
agricultural products for processing.
Fragmentation of agricultural land
into lots which cannot facilitate
agricultural production undermines
the industry and the wider economy.
There needs to be a balance between
land capability and land development
requirements while not compromising
primary production.
The second sub-section of the MSS,
21.02 Key Influences, likewise opens
strongly with the following statement:
‘The following key influences have
been drawn from various reference
documents included in Clause 21.10
and provide the rationale for the
objectives and strategies at Clauses
21.05 – 21.08 in the Municipal
Strategic Statement’. This statement
provides a clear and precise message to
the reader as to what one can expect
from the remainder of the MSS.
Utilised in this sub-section, are the
same headings that appear in 21.01
Municipal Profile. In this sense, the
MSS continues to flow in a manner
that is logical and easy to read.
Page 49 of 175
The topic of the review once again
receives several mentions in this sub-
section, the first two of which occur
under the sub-heading Housing:
‘Demand for low density residential
and rural living lifestyles has the
potential to fragment productive
agricultural land [and] There is
particular pressure for development at
Logans Beach which is a popular
tourism destination’. The next
reference to the topic in review occurs
post the heading Environment:
‘Appropriate management of the
urban-agricultural interface will be
required to protect farming operations
and maintain a greenbelt around the
city’ Interestingly, the MSS
acknowledges that residential
development is not the only potential
threat to the ongoing viability of peri-
urban agricultural lands. Under the
heading Economic Development, the
following issue is highlighted: ‘There
are development pressures occurring at
the outskirts of Warrnambool
including bulky goods establishments
and associated signage on the main
roads into towns’.
The remaining eight sub-sections of
the MSS all follow a similar pattern:
succinct, legible (‘plain English’) and
generally user-friendly. This is
probably in no small part due to the
fact that the entire MSS according to
21.04 Objectives – Strategies –
Implementation:
…relies on four themes for which
strategic directions have been
developed: Housing, Environment,
Economic Development and
Infrastructure. Each of these four
themes is addressed in the MSS under
the following headings: Overview,
Objectives, Strategies, Implementation,
Page 50 of 175
Further Strategic Work, Other Actions
[and] Reference Documents.
The MSS reads as an integrated
document, and given that apart from
two sub-sections which have been
recently updated (Economic
Development and Reference
Documents), and this is consistent with
the fact that each was developed as
part of the one amendment process. In
sum, the MSS does what it is asked to
do pursuant to Clause 20.01, and
assuming the remaining sub-sections
are updated in a similar manner, there
is little doubt that this document will
serve well the people of Warrnambool
into the foreseeable future.
11.02
Urban
growth
DPO6
DPO7
Dennington
Rise
Development
Plan
North East
Warrnambool
Growth Area
State Policy 11.02 Urban Growth is
reflected in the WPS via a range of
local mechanisms. The most relevant
to this review is the application of two
Development Plan Overlays. Prior to
the development of the plans
represented by these two Overlays, the
land to which the plans apply was
rural/agricultural in nature. As such,
the boundaries contained in the plans
now form the new urban growth
boundary in this section of
Warrnambool. While these plans do
not propose the further extension of the
urban footprint other than for what is
already claimed, they do in effect (at
least as far as DPO7 is concerned)
allow for the continued use of the land
for agricultural purposes until such
time, it is envisaged, that this practice
becomes untenable and or the land is
needed for further urban expansion.
11.02-
1 Supply of
urban land
See: 11.02
11.02-
2 Planning for
growth areas
See: 11.02
11.02- Structure See: 11.02
Page 51 of 175
3 planning
11.02-
4 Sequencing
of planning
See: 11.02
11.05-
3 Rural
productivity
See: 14.01 Agriculture
12.02 Coastal areas See: 12.04 Significant environments
and landscapes
12.04 Significant
environments
and
landscapes
42.01 Schedule 1 to
the
Environmental
Significance
Overlay (ESO1)
ESO2
ESO3
ESO4
ESO1 Coastal Environs: While this
Overlay does not specify the protection
of agricultural land, it could be
considered if the same were said to
have environmental significance.
ESO 2 Hopkins and Merri River
Environs: Similar to coastal environs,
this Overlay seeks to protect those
riparian lands that hold environmental
significance, be they agriculturally or
otherwise.
ESO 3 Lake Gillear: Unlike the two
previous, this particular Overlay does
include ‘farming’ as part of the
environmental objectives it seeks to
achieve: ‘…ensure freehold land
adjacent to Lake Gillear is used in a
sustainable manner, primarily for
farming and recreational purposes’.
ESO 4 South Warrnambool
Wetlands: Much the same as the first
two, this Overlay does specifically
mention farming and/or agriculture in
its objectives. However if
farming/agricultural land should be
affected by this Overlay, then any
associated activities would need to
meet the overall objective, which is to
protect the significant environment.
14.01
Agriculture 35.07 Farming Zone
(FZ)
Schedule to the
FZ
The primary tool in the WPS
concerned with the development and
use of agricultural land within the City
of Warrnambool is the application of
the Farming Zone (FZ).
The purpose of the FZ within the City
Page 52 of 175
of Warrnambool is (as it is with all
land designated FZ throughout
Victoria): ‘to implement the State
Planning Policy Framework and the
Local Planning Policy Framework,
including the Municipal Strategic
Statement and local planning policies;
to provide for the use of land for
agriculture; to encourage the retention
of productive agricultural land; to
ensure that non-agricultural uses,
particularly dwellings, do not
adversely affect the use of land for
agriculture; to encourage use and
development of land based on
comprehensive and sustainable land
management practices and
infrastructure provision [and] to
protect and enhance natural resources
and the biodiversity of the area’.
In order to help implement the above,
the WPS contains Local Polices (see:
below) that are specifically concerned
with the use and development of
agricultural land.
In what could appear to be a
contradiction to the above objectives,
the WPS in the Schedule to the FZ
allows for the subdivision of land in
the FZ to a minimum of 15ha. Further
to this, the ‘minimum area for which
no permit is required to use land for a
dwelling’ in the FZ is 15ha. The
intention of this decision to move away
from the standard default of a 40ha
minimum in both cases is unknown. A
search of the DPCD website Planning
Scheme History for Warrnambool
reveals that the 15ha minimum has
been the standard for Warrnambool
since the inception of the VPP in 1999.
It is therefore surmised that the relative
(to the remainder of Victoria) small
size of the majority of land parcels
designated FZ within the City of
Page 53 of 175
Warrnambool, together with the ability
of these parcels within this particular
area (high rainfall, productive
soils/pasture) to still provide for viable
farming/grazing pursuits could be the
basis for the original decision.
Whatever the reason for the initial
decision, it would appear to have the
full support of Senior VCAT Member
Richard Horsfall. When the question of
minimum FZ (then Rural Zone) lot
sizes in Warrnambool was raised in
Ryan v Warrnambool CC [2005]
VCAT 1799, Horsfall found ‘…the
requirement that the balance lot [of a
proposed house excision/2 lot
subdivision] be at least 15 ha is a
policy soundly based on the provisions
of the [Warrnambool] planning
scheme’.
14.01-
1 Protection of
agricultural
land
22.03-
1
22.03-
2
Industrial
Development in
Rural Areas
Excisions Of
Dwellings In
The Rural Zone
In response to State Policy 14.01-1
Protection of agricultural land two
Local Policies apply.
22.03-1: ‘[Industrial] development
sites in rural areas may be supported
where they can minimise impact on
agriculture land and land management
practices; have sealed access roads;
dispose of effluent properly [and]
maintain the visual qualities of the
rural landscape’.
22.03-2: ‘This policy applies to lots
proposed to be created under clause
35.01-4, dot point 3 of the Rural
Zone’.
The second policy is based on ‘the
need to protect agricultural land is
referred to in the MSS. It is important
that agricultural land be retained in
productive units and that the
fragmentation of land should be
discouraged’.
Page 54 of 175
The objectives of the second policy are
‘to ensure that the excisions of lots and
dwellings in the Rural Zone is
consistent with the purposes of the
zone; to limit the subdivision, use or
development of land that will be
incompatible with the utilization of the
land for sustainable resource use [and]
to ensure that dwellings which are
excised or constructed on an excised
lot do not prejudice rural production
activities and are appropriately sited’.
In implementing the second policy, it
is noted that ‘lots created under the
provisions of Clause 35.01-4, dot point
3, should have a maximum size of 2
hectares, except as otherwise required
by a provision of this planning scheme;
subdivision which is not for the
purposes of excising an existing
dwelling should be discouraged;
dwellings excised under the provisions
of Clause 35.01-4 should be in a
habitable condition and comply with
the Building Code of Australia [and]
the smaller lot should be created in
such a way that a potential or existing
dwelling will not restrict surrounding
agricultural activities’.
Clause 35.01-4 no longer exists in the
WPS. As such it is recommended that
at the next general amendment to the
WPS this anomaly is rectified, and
reference is instead made to Clause
35.07 Farming Zone (FZ).
See also: 35.07 Farming Zone (FZ)
14.01-
2 Sustainable
agricultural
land use
See above.
16.02-
1 Rural
residential
development
See: 14.01-1 Protection of
agricultural land
Page 55 of 175
2.4 Analysis of the Corangamite Shire Council Local Government Area
Planning Schemes in Respect to their Rural Zone Areas
Table 3 sets out the Rural Zones and Overlays applied in the CSC PS from the suite available
in the VPP and the Objectives of the Locally Applied Rural Zones, Overlays and specific
Land Use Planning Policies.
Table 4 provides a review of the CSC PS in relation to the application of the rural zones,
approaches to agriculture and the conversion of land use and developments (dwellings) in
rural areas.
Table 3. Corangamite Shire Council Local Government Area Planning Scheme-
Objectives of the Locally Applied Rural Zones, Overlays and Specific Land Use
Planning Policies.
Zones Key Objectives RLZ
Schedule
Restate the minimum (VPP – 8 ha) subdivision area:
All land – 8 ha
Allow for a reduction in the minimum (VPP – 8 ha) area for which no permit
is required to use land for a dwelling:
All land – 0.7 ha
RCZ
Schedule 1
Allow for an increase in the minimum (VPP – 40 ha) subdivision area:
All land – 60 ha
RCZ
Schedule 2
Allow for an increase in the minimum (VPP – 40 ha) subdivision area:
All land in the RCZ – 60 ha
Restate the minimum (VPP – 40 ha) subdivision area:
All land in the RCZ and FZ – 40 ha
FZ
Schedule 1
Allow for an alteration to the minimum (VPP – 40 ha) subdivision area:
Land in Timboon described as Lot 9 LP64910, Lot 1 TP711332 and
Lot 2 PS444640 – Minimum area necessary to create a balance lot in
the Farming Zone
Restate the minimum (VPP – 40 ha) subdivision area:
All land – 40 ha
Restate the minimum (VPP – 40 ha) area for which no permit is required to
use land for a dwelling:
All land – 40 ha
Page 56 of 175
FZ
Schedule 2
Allow for a reduction the minimum (VPP – 40 ha) subdivision area:
All land – 4 ha
Allow for a reduction in the minimum (VPP – 40 ha) area for which no permit
is required to use land for a dwelling:
All land – 20 ha
Overlays Key Objective ESO
Schedule 1
To maintain the biological, physical and chemical quality and quantity of
water within the watercourse, water body or wetland
ESO
Schedule 2
To protect rare or threatened species or significant habitats for native flora
and fauna
VPO
Schedule 1
To protect areas of significant remnant vegetation throughout the municipality
VPO
Schedule 2
To protect areas of significant remnant vegetation located along roadsides
throughout the municipality
SLO
Schedule 1
To protect and enhance the visual and environmental quality and character of
volcanic features, including crater lakes and scoria cones and their environs
SLO
Schedule 3
To protect and enhance the visual and environmental quality and character of
the coastal environment of the Great Ocean Road
HO
Schedule
(Numerous
rural)
To conserve and enhance heritage places of natural or cultural significance
DPO
Schedule 5
To require a development plan be submitted and approved by the responsible
authority to ensure that the proposed small agricultural lots are designed to
achieve environmental protection:
Rural 2 land located south of Timboon off Curdievale Road, south of
the low density residential area
EMO
Schedule 1
To protect areas prone to erosion, landslip or other land degradation
processes, by minimising land disturbance and inappropriate development
LSIO
Schedule 1
To identify land in a flood storage or flood fringe area affected by the 1 in 100
year flood or any other area determined by the floodplain management
authority
WMO To identify areas where the intensity of wildfire is significant and likely to
pose a threat to life and property
EAO To ensure that potentially contaminated land is suitable for a use which could
be significantly adversely affected by any contamination
RO
Schedule
To identify old and inappropriate subdivisions which are to be restructured
and to preserve and enhance the amenity of the area and reduce the
environmental impacts of dwellings and other development
Ballarat-Camperdown Road, Camperdown
Policies Key objectives 22.01-1
Urban
Growth
To ensure that incompatible urban and rural uses are clearly separated, and to
establish a clear process and set of criteria which are to be met to guide the
process of the future conversion of rural land, particularly where it is
Page 57 of 175
Boundaries productive agricultural land, to urban uses
Rural-urban interface of all township areas within Corangamite,
indicated by the boundary of urban zones
22.02-1
Catchment
and Land
Protection
To ensure the sustainable development of natural resources of soil, water,
flora, fauna, air and ecosystems
All land and water in the Rural and Low Density Residential zones.
22.03-1
Agricultural
Land
(All rural
land)
To:
Protect the natural and physical resources upon which agricultural
industries rely
Promote agricultural industries which are ecologically sustainable
and incorporate best management practices
Prevent land use conflicts between agricultural uses and sensitive
uses and ensure that use and development in the Shire is not
prejudicial to agricultural industries or the productive capacity of the
land
Support the diversification of agriculture, the development of
agroforestry and the processing of agricultural products grown within
the municipality
22.03-2
Horticulture
(All rural
land)
To promote sustainable horticultural production
22.03-3
Timber
Production
(new timber
plantations
and timber
industries)
To ensure that:
Processing and value adding industries are located within the Shire
Timber production is developed in accordance with the Code of
Forest Practice for Timber Production
Water quality is not affected during planting and harvesting of timber
Adequate road infrastructure is provided to all sites
Adequate fire safety measures for all plantations are implemented and
maintained
22.03-4
Tourist Use
and
Development
To:
Support quality tourist development in association with the landscape
and the heritage values of rural and urban areas
Promote coastal related use and development to be focused in the
towns of Port Campbell and Princetown
Encourage tourism development related to agricultural and other rural
based industries
22.04-1
Particular
Use and
Development
To ensure that rural development is sited so as not to prejudice the landscape
features and environmental attributes of the surrounding area
Page 58 of 175
Table 4. A review of the Corangamite Shire Council Local Government Area Planning
Scheme in Relation to the Rural Zones, Agriculture and the Conversion of Land Uses.
2 Clauses not directly related to the Corangamite Shire council local government area Planning Scheme in general, and to this review in
particular, have been omitted.
SPPF2
Policy LPPF MSS, Local Policy,
applied Zone and/or
Overlay(Date/Amend)
Discussion, Recommendations
and Suggestions for Further
Analysis
11 Settlement 21.01
21.02
21.03
21.03-
1
21.03-
2
21.04
21.04-
1
21.04-
2
21.04-
3
21.05
Municipal Profile
(31-05-2007/C3)
Key Influences
(28-09-2006/C13)
Vision and Strategic
Framework Plan
(31-05-2007/C3)
Strategic
Framework Plan
(31-05-2007/C3)
Corangamite
Council Plan
(31-05-2007/C3)
Objectives, Strategy
and Implementation
(28-08-2008/C16 Part
2)
Settlement
(28-08-2008/C16 Part
2)
Environment
(31-01-2008/C12)
Economic
Development
(02-08-2007/C20)
Monitoring and
Review
(19-01-2006/VC37)
The Municipal Strategic
Statement (MSS) as contained
within the Corangamite
Planning Scheme (CPS)
Pursuant to Clause 20.01 of the
Victorian Planning Provisions
(VPP):
The Municipal Strategic
Statement (MSS) is a concise
statement of the key strategic
planning, land use and
development objectives for the
municipality and the strategies
and actions for achieving the
objectives. It furthers the
objectives of planning in Victoria
to the extent that the State
Planning Policy Framework is
applicable to the municipality and
local issues. It provides the
strategic basis for the application
of the zones, overlays and
particular provisions in the
planning scheme and decision
making by the responsible
authority. The MSS provides an
opportunity for an integrated
approach to planning across all
areas of council and should
clearly express links to the
corporate plan.
The MSS, as contained with the
CPS, struggles to match the
expectations of the above
Page 59 of 175
definition. Firstly, it is not a
‘concise statement’. At 53-pages
in length – the bulk of which (43)
are contained in one sub-section
(21.04) – the MSS presents as a
cumbersome document. It is
neither easy to navigate nor
subsequently easy to extract
relevant information. Much of the
excess bulk of the MSS is due to a
multiplication of its many ‘key’
points being spread across five
sub-sections, and many more sub
sub-sections. Secondly, the MSS
does not present the ‘key strategic
planning, land use and
development objectives for the
municipality and the strategies
and actions for achieving [these]
objectives’ in a sequential and
therefore logical manner. This
anomaly is partly or mainly the
result if it having been cobbled
together by six separate
amendment processes (C3, C12,
C13, C16 Part 2, C20 and VC37).
This ad hoc approach to the
development of the MSS means
that it does not adequately
provide for a succinct and
‘integrated approach to planning
across all areas of Council’.
While the MSS does make
reference to the Corangamite
Council Plan (CCP) in at least one
instance, it fails to ‘clearly
express [multiple and relevant]
links to the corporate plan’
throughout the remainder of the
document. This means that the
overall objectives, strategies and
actions of the MSS do not
consistently appear to be
supported, much less in alignment
with those of the (CCP). Finally,
where the MSS does match the
above definition, is in the sense
Page 60 of 175
that it ‘provides the strategic basis
for the application of the zones,
overlays and particular provisions
in the planning scheme and
decision making by the
responsible authority’. All (or at
least, most) of the critical
objectives, strategies and actions
that are ‘applicable to the
municipality and local issues’ are
present in the MSS – it’s just that
they are not presented in a manner
that makes them easily
identifiable – indeed, cross-
referenceable – to the overall
‘objectives of planning in
Victoria’ as detailed in ‘the State
Planning Policy Framework’.
Significantly this is nowhere more
apparent than with issues
concerned the conversion of
agricultural to residential land
occurring across the Shire.
11.02 Urban
growth
22.01-
1
Urban Growth
Boundaries
(19-01-2006/VC37)
The first pertinent (to the overall
review) point of Local Policy
22.01-1 Urban Growth
Boundaries is contained under
the sub-heading Policy Basis and
reads: ‘Urban development
should not prejudice or limit the
agricultural use of land around
towns’. The second contained
under the sub-heading Objectives
reads: ‘To establish a clear
process and set of criteria which
are to be met to guide the process
of the future conversion of rural
land, particularly where it is
productive agricultural land, to
urban uses’. The third and fourth
are contained under the sub-
heading Policy and read: ‘It is
policy that provision for
population growth within the
main township areas should be
designed to lessen conflict in
agricultural areas between
Page 61 of 175
agriculture and non-agricultural
land uses’ and ‘Land in
agricultural production is to be
protected from adjoining uses and
development inconsistent with
normal farming practices. Zoning
will be used to provide a clear
urban growth boundary’. The fifth
and final point contained under
the sub-heading Reference
Documents directs the readers’
attention to the individual
Township Structure Plans as
contained at 21.04-1 Settlement.
These plans, together with the
urban growth boundaries
contained within, generally
appear to match those that occur
on the zoning maps as available at
(e.g. DPCD (2010) Corangamite
Planning Scheme – Zoning Map –
Camperdown).
This particular Local Policy is
appropriate in its application and
operation.
See also: 22.01-2 House Lot
Excision
11.02-
1 Supply of
urban land
See: 21.04-1 Settlement
11.02-
3 Structure
planning
45.05 Restructure Overlay
(RO)
(19-01-2006/VC37)
Schedule to the RO
(28-08-2008/C16 Part
2)
Restructure Overlays are
generally applied with the
purpose ‘To identify old and
inappropriate subdivisions which
are to be restructured’ and/or ‘To
preserve and enhance the amenity
of the area and reduce the
environmental impacts of
dwellings and other
development’.
This particular Schedule to the
Restructure Overlay has been
applied to multiple parcels of land
with multiple zonings (LDRZ,
Page 62 of 175
RLZ and FZ) situated within and
outside the urban growth
boundary to the northeast of
Camperdown. According to the
Explanatory Report Amendment
C16 Part 2, this particular overlay
was applied in order to ‘limit the
number of dwellings in the low
lying [Land Subject to
Inundation] areas on the land
[and] allow inappropriately small
lot subdivision to be restructured
into larger allotments thereby
reducing the number of lots which
is matched to the estimated
development potential of the
land’.
Considering that the above
objectives appear to meet with
those prescribed at 45.05, it can
be deemed that this particular
Schedule to the RO is appropriate
in terms of both application and
operation.
11.02-
4 Sequencing of
planning
43.04 Development Plan
Overlay (DPO)
(21-09-2009/VC60)
Schedules 1 to 4 & 6
to 9 to the DPO
(DPO1 to DPO4 &
DPO6 to DPO9)
Schedule 5 to the
DPO (DPO5)
(28/09/2006 C13)
DPOs 1 to 4 & 6 to 9 are all
concerned with land that is zoned
residential and as such of are no
consequence to this review.
Schedule 5 to the DPO is applied
to Farming Zone Schedule 2
land and as such is important to
this review:
[DPO5] applies to the land
located south of Timboon off
Curdievale Road, south of the low
density residential area. A
development plan is required to
ensure that the proposed small
agricultural lots are designed to
Page 63 of 175
achieve environmental protection.
An environmental management
plan is required to ensure that
appropriate land management
practices are followed in
establishing the development and
for future occupants.
11.05-
1 Regional
settlement
networks
21.03-
1
Strategic Framework
Plan
(31-05-2007/C3)
The Strategic Framework Plan
would form the basis for any
future analysis of land use issues
across the Shire and extending
into the region as a whole.
11.05-
3 Rural
productivity
See: 35.07 Farming Zone (FZ)
12.01 Biodiversity 22.02-
5
Biodiversity
(31-01-2008/C12)
12.01-
1 Protection of
habitat
Schedule 2 to the
ESO (ESO2)
(19-01-2006/VC37)
12.01-
2 Native
vegetation
management
42.02 Vegetation Protection
Overlay (VPO)
(18-11-2011/VC83)
Schedule 1 to the
VPO (VPO1)
(19-01-2006/VC37)
Schedule 2 to the
VPO (VPO2)
(19-01-2006/VC37)
12.02-
5 The Great
Ocean Road
region
Schedule 3 to the
SLO (SLO3)
(19-01-2006/VC37)
12.04 Significant
environments
and
landscapes
22.04-
6
42.01
42.03
Sheds and
Outbuildings
(19-01-2006/VC37)
Environmental
Significance Overlay
(ESO)
(18-11-2011/VC83)
Significant
Landscape Overlay
(SLO)
Significant environments and
landscapes (particularly those of a
volcanic nature, and/or aquifer
recharge) act as a natural
constraint to urban growth and/or
the fragmentation of prime
agricultural land. As such, an
analysis of all (any?) permit
activity triggered under these
Overlays during the previous 5-
years needs to be undertaken in
order to determine the net gain or
Page 64 of 175
(18-11-2011/VC83)
Schedule 1 to the
SLO (SLO1)
(31-05-2007/C3)
loss of prime agricultural land in
the Shire as a result of these
activities.
See also: LSIO (flooding
constraints) and WMO (bushfire
management constraints)
12.04-
1 Environ-
mentally
sensitive
areas
22.02-
6
Lake Gnotuk and
Lake Bullen Merri
(31-01-2008/C12)
See: 12.04 Significant
environments and landscapes
12.04-
2 Landscapes Schedule 2 to the
SLO (SLO2)
(31-05-2007/C3)
13.02 Floodplains 44.04 Land Subject to
Inundation Overlay
(LSIO)
(21-09-2009/VC60)
Schedule to the LSIO
(LSIO)
(19-01-2006/VC37)
Areas of land subject to
inundation (particularly those of a
volcanic nature, and/or aquifer
recharge) act as a natural
constraint to urban growth and/or
the fragmentation of prime
agricultural land. As such, an
analysis of all (any?) permit
activity triggered under these
Overlays during the previous 5-
years needs to be undertaken in
order to determine the net gain or
loss of prime agricultural land in
the Shire as a result of these
activities.
See also: WMO (bushfire
management constraints)
13.02-
1 Floodplain
management
22.02-
3
Wetland areas
(31-01-2008/C12)
See: 44.04 Land Subject to
Inundation Overlay
13.03-
1 Use of
contaminated
and
potentially
contaminated
land
45.03 Environmental Audit
Overlay (EAO)
(19-01-2006/VC37)
13.03-
2 Erosion and
landslip
22.02-
2
44.01
Erosion
(31-01-2008/C12)
Erosion Management
Overlay (EMO)
(18-11-2011/VC83)
Page 65 of 175
Schedule 1 to the
EMO (EMO1)
(19-11-2009/C26)
13.05-
1 Bushfire
planning
strategies and
principles
44.06 Bushfire Management
Overlay (BMO or
WMO)
(18-11-2011/VC83)
Areas of land subject to bushfire
act as a natural constraint to urban
growth. As such, an analysis of all
(any?) permit activity triggered
under these Overlays during the
previous 5-years needs to be
undertaken in order to determine
the net gain or loss of prime
agricultural land in the Shire as a
result of these activities.
14.01 Agriculture 22.03-
1
22.03-
2
22.04-
5
35.07
Agriculture
(19-01-2006/VC37)
Horticulture
(19-01-2006/VC37)
Intensive Animal
Husbandry
(19-01-2006/VC37)
Farming Zone (FZ)
(23-09-2011/VC77)
Schedule 1 to the FZ
(FZ1)
(15-09-2008/VC49)
Schedule 2 to the FZ
(FZ2)
(15/09/2008 VC49)
These three policies combined
(and nested under the one heading
‘agriculture’), together with the
policy on forestry, are probably
the key Local Policies directly
affecting the use of rural land in
the Shire.
The provisions of the Farming
Zone (FZ) and its supporting
Schedules (FZ1 and 2), together
with Local Policy 22.01-2 House
Lot Excision, are the primary
mechanisms employed in the
Corangamite PS in an effort to
regulate the subdivision of (and
possible fragmentation and/or
inappropriate siting of dwellings
on) prime agricultural land
throughout the Shire. It is
therefore important to this review
that an analysis of all permit
activity triggered in the FZ during
the previous 5-years be
undertaken in order to determine
the net gain or loss of prime
agricultural land in the Shire
during the same period.
14.01-
1 Protection of
agricultural
land
22.01-
2
House Lot Excision
(02-08-2007/C20)
This Local Policy applies solely
to the Farming Zone (FZ). The
policy is based on the following
statement: ‘House lot excisions
can be detrimental to the efficient
operation of farming if the lot
Page 66 of 175
provided does not relate to the
farming activity’.
The objectives of Local Policy
22.01-2 House Lot Excision are
threefold: 1) ‘To ensure that the
excisions of dwellings and
creation of lots smaller than that
specified in the Schedule to the
Farming Zone is consistent with
the purposes of the zone’; 2) ‘To
limit the subdivision of land that
will be incompatible with the
utilisation of the land for
sustainable resource use’, and 3)
‘To ensure that the subdivision of
land which excises a dwelling is
designed in a manner which does
not prejudice surrounding rural
production activities’.
In implementing the policy, a
range of factors pertinent to the
review are considered, including:
Lots created under the
provisions of Clause 35.03-4,
35.06-3 and 35.07-3 should
have a maximum size of 2
hectares, except as otherwise
required by a provision of this
planning scheme.
Dwellings excised under the
provisions of Clause 35.03-4,
35.06-3 and 35.07-3 will be in
a habitable condition and
comply with the Building
Code of Australia to this
extent.
The excision of dwellings will
take place in a manner which
will ensure the dwelling does
not have the potential to
restrict agricultural
production on adjacent land.
It should be ensured that
adequate distance is
Page 67 of 175
maintained within the existing
lot around the dwelling to
reasonably limit likely impacts
(if any) of adjacent
agricultural activity. The
permit may require the
planting of vegetation within
the excised lot to reduce any
potential impacts.
Subdivision that is likely to
lead to such a concentration
of lots as to change the
general use and character of
the rural area will be
discouraged unless it can be
shown that the clustering of
lots will not limit the
productive use and
development of the larger lots
in the subdivision or that
surrounding.
Subdivision within urban
water supply catchment areas
will be strongly discouraged
in order to protect water
quantity and quality.
An analysis of all permit activity
triggered by Local Policy 22.01-2
House Lot Excision during the
previous 5-years must be
undertaken in order to determine
the net gain or loss of prime
agricultural land in the Shire
during the same period.
14.01-
2 Sustainable
agricultural
land use
35.06 Rural Conservation
Zone (RCZ)
(23-09-2011/VC77)
Schedule 1 to the
RCZ
(15-09-2008/VC49)
Schedule 2 to the
RCZ
(15-09-2008/VC49)
Perhaps to a lessor extent, but no
less important degree to the FZ,
the relevance of permit activity
occurring in the RCZ during the
previous 5-years is important to
this study. It is therefore likewise
suggested that an analysis of all
permit activity triggered in the
RCZ during the same period be
undertaken in order to determine
if these activities had any effect
on the net gain or loss of prime
Page 68 of 175
agricultural land in the Shire.
14.01-
3 Forestry and
timber
production
22.03-
3
Timber and Timber
Processing
Industries
(19-01-2006/VC37)
See also: 22.03-1 Agriculture
14.02 Water 22.04-
2
Dams
(19-01-2006/VC37)
Schedule 1 to the
ESO (ESO1)
(19-01-2006/VC37)
Any affect from the development
of dams, particularly in the RLZ,
to the fragmentation/loss of prime
quality agricultural land would
need to be determined by the
undertaking of an audit on all
(any permits triggered as a result
of this Local Policy).
14.02-
1 Catchment
planning and
management
22.02-
1
Catchment and land
protection
(19-01-2006/VC37)
15.01 Urban
environment
22.04-
7
Townscape
(19-01-2006/VC37)
15.01-
1
Urban design
22.04-
1
Building Lines and
Height (02-08-
2007/C20)
15.03 Heritage 22.02-
4
Natural and Cultural
Heritage
(31-01-2008/C12)
15.03-
1 Heritage
conservation
43.01 Heritage Overlay
(HO)
Schedule to the HO
(HO1 to HO212)
15.03-
2 Aboriginal
cultural
heritage
Need to undertake an audit of all
(any?) CHMP activity occurring
in the Shire to determine if
Section 52 (1) of the Aboriginal
Heritage Act 2006: ‘the
responsible authority must not
grant a planning permit without
an approved CHMP’ has any
bearing on the development and
use of agricultural land within the
Shire.
16.02-
1 Rural
residential
development
35.03 Rural Living Zone
(RLZ)
Schedule to the RLZ
(15-09-2008/VC49)
Like the FZ, and the RCZ but
perhaps to a lesser degree (as it is
‘shutting the gate after the horse
has bolted’), the permit activity
occurring in the RLZ is important
to this study. Therefore an
Page 69 of 175
3 Consultation
Consultation activities were an important element in defining and refining the scope of this
Project. The Project was guided by a Steering Committee, comprising a broad range of
representatives. The composition of the Project Steering Committee was considered to be a
good representation of community, industry, natural resource managers, government
agencies, and Councillors (Table 5). This ensured that the Project ran in accordance with
analysis of all permit activity
triggered in the RLZ during the
previous 5-years needs to be
undertaken in order to determine
if these activities had any effect
on the net gain or loss of prime
agricultural land in the Shire.
17.02-
1 Industrial
land
development
22.04-
4
Industrial
development
(19-01-2006/VC37)
17.03-
1 Facilitating
tourism
22.03-
4
Tourism use and
development
(19-01-2006/VC37)
Of particular importance to the
review is the Versace et al.,
(2011) dealing with the mapping
of potential tourism
accommodation sites across the
shire. Also Corangamite Shire
Tourism Opportunities Study
(2010)
18.02-
4 Management
of road
system
22.01-
4
22.04-
3
Road construction
(19-01-2006/VC37)
Highway
Development
(19-01-2006/VC37)
Applies to non-urban roads.
However, generally confined to
existing road reserves and as such
exhibits no perceived threat to the
viability of prime agricultural
land.
19.03 Development
infrastructure
22.01-
3
Residential
infrastructure (19-01-
2006/VC37)
19.03-
2 Water
supply,
sewerage and
drainage
22.01-
5
Water infrastructure
(19-01-2006/VC37)
Page 70 of 175
milestones, while obtaining invaluable input from the Steering Committee. From the
beginning, the Project Steering Committee members were given the task to act as advocates
for the Project and represent the viewpoints of their communities, organisations or
constituents.
Table 5. List of Stakeholder Representatives used in the Project Steering Committee
Stakeholder Number
Warrnambool City Council Councillor 1
Corangamite Shire Council Councillor 1
Warrnambool City Council Strategic Planner 1
Corangamite Shire Council Strategic Planner 1
Glenelg Hopkins Catchment Management Authority 1
Corangamite Catchment Management Authority 1
Department of Sustainability and Environment 1
Department of Primary Industries 1
Department of Planning and Community Development 1
Wannon Water 1
Regional Development Victoria 1
Southern Rural Water 1
WestVic Dairy 1
Victorian Farmer Federation 1
Warrnambool City Council Community representative 2
Corangamite Shire Council Community representative 2
Moyne Shire council representative 1
3.1.1 Strategic Planning Consultation
At the beginning of the Project the Project Steering Committee, Council staff and Councillors
were provided with a summary of the proposed Project and were invited to provide feedback
(via a written survey) about its direction and feasibility. This survey included a ranking of the
top planning issues within each LGA, a description of the ideal future and a list of what each
respondent would not like to see as part of the future in their LGA. The aim of this
consultation process was undertaken to identify the six most pressing strategic planning
issues for WCC and CSC LGAs. Feedback through the surveys was collected from 21
Page 71 of 175
individuals. Although many issues were identified, it became apparent that there was
considerable overlap between responses (Figure 2). The initial analysis showed that 14 issues
were highlighted by 2 or more respondents (Figure 2).
Figure 2. Summary of Initial Analysis of the Returned Questionnaires
Closer examination of these 14 issues revealed that some issues were closely related (e.g.
protection of food producing land and protection of agricultural land) and, therefore, could be
aggregated to identify the top six issues for strategic planning across the two LGAs (Figure
3). In order of the number of respondents who identified each as an issue these six issues
were:
1. Urban sprawl/urban containment
2. Protection of agricultural lands
3. Farm Zone Planning
Page 72 of 175
4. Resource degradation
5. Coastal development
6. Population
Figure 3. Strategic issues from Figure 2 aggregated into six major strategic issues. NB:
Population represents an aggregation of four issues related to population: a growing
population (n=3); a sustainable population (n=2); overpopulation (n=1); and population
distribution (n=1)
3.1.2 Statutory Planning Consultation
Once the strategic issues had been identified the next consultation process involved engaging
statutory planners at the WCC and CSC in a workshop to identify the most important
statutory issues facing each LGA. The aim of the workshops was to determine the major
statutory issues that planners in WCC and CSC regularly encountered and identify the
common statutory themes emerging from the local shires. Questions investigated included:
What statutory problems need to be addressed?
Who presents these issues to council?
Page 73 of 175
What do the planners perceive to be the greatest concerns presented to them by local
ratepayers?
The following provides a summary of the most pressing statutory planning issues identified
by the participants for each LGA.
3.1.2.1 Warrnambool City Council Local Government Area
1. Protection of agricultural land was the most pressing issue for Warrnambool Planners.
Associated with this the following issues were raised:
Minimum lot size
As of right dwellings (identified as the most important factor threatening agricultural
land)
Requirement for guidance on farm zone decisions
2. The need for a macro approach to planning was identified (i.e. by making the MSS
clearer).
What is the purpose of each zone and what does it seek to achieve?
What other pieces of legislation (e.g. Coastal Management Act, Heritage Act) could
be evoked? And what would the triggers for this be?
3. Another issue discussed was urban consolidation and use of other zones:
Residential 1 Zone is currently widespread – but very conservative
Residential 2 Zone may better encourage consolidation
Page 74 of 175
Better local policy on subdivisions and dwellings (pertains also to agricultural land).
3.1.2.2 Corangamite Shire Council Local Government Area
The three most pressing statutory issues for CSC LGA were identified as:
1. Rural Housing:
Existing houses and excisions
Existing houses and lot sizes (over 40 hectares)
New houses on smaller blocks
2. Rural subdivision:
Small lots
Above 40 hectares and boundary alignments (titles and the rights they provide)
The consideration of non-agricultural uses
3. Demand for rural lifestyles:
Statutory and strategic levels
4. Other:
Statutory planners require justifiable evidence for decisions
Clarity around edge of township dwellings
More policy prescriptions (e.g. value of agricultural land)
Rural Zoning
Page 75 of 175
Rural living Zone
Farm Zones (e.g. around townships)
Rural Activity Zone (currently not use)
3.1.3 Stakeholder engagement
To date the Stakeholder engagement for the Project has focused mostly on consultation with
the Project Steering Committee along with Council staff and Councillors from the WCC and
CSC LGAs (Table 6).
Page 76 of 175
Table 6. Consultation Activities Undertaken Throughout the Project.
Stakeholder
group
Internal/
External Date Type of Engagement
Person/s
Responsible
Project Working
Group
Internal September 9, 2009 Meeting Vincent Versace
Project Working
Group
Internal October 8, 2010 Presentation Vincent Versace
Corangamite
Shire Councillors
and planners
External November 17, 2009 Presentation and surveys Vincent Versace
Sophie
Segafredo
Project Steering
Committee
External November 25, 2009 Presentation and surveys Vincent Versace
Ian Fitzgibbon
Sophie
Segafredo
Women involved
in farming, NRM
and government
(Lead Laugh
Lunch)
External December 1, 2010 Presentation Vincent Versace
Project Working
Group
Internal December 17, 2009 Meeting Vincent Versace
External
Consultant
External February 11, 2010 Meeting and handout Vincent Versace
Sophie
Segafredo
Ian Fitzgibbon
Project Working
Group
Internal March 11, 2010 Meeting Vincent Versace
Melbourne
University
Masters Students
– Sustainable
Landscapes
External March 27, 2010 Oral overview of Project
in the contact of south
west Victoria
Vincent Versace
Warrnambool
City Councillors
and planners
External April 14, 2010 Presentation at council
meeting with questions
Vincent Versace
Ian Fitzgibbon
Project Working
Group
Internal April 15, 2010 Meeting Vincent Versace
South West
Sustainability
Partnership
(Draft Western
Region
Sustainable
Water Strategy
Launch)
External April 15, 2010 Networking and chairing
of session on
environmental water use
Vincent Versace
DPCD (Barwon
South West
Climate Change
Workshop)
External April 20, 2010 Networking and
awareness raising
Vincent Versace
Anne Wallis
Page 77 of 175
Deakin
University
External May 21, 2010 Presentation Vincent Versace
Project Working
Group
Internal June 17, 2010 Meeting Vincent Versace
Warrnambool
City Council
(statutory and
environmental
planners)
External June 21, 2010 Workshop and interview Vincent Versace
Anne Wallis
Ian Fitzgibbon
Corangamite
Shire (strategic,
statutory and
environmental
planners)
External June 21, 2010 Workshop, interview and
presentation
Vincent Versace
Anne Wallis
Sophie
Segafredo
External
consultant
(Mike Scott-
Planisphere)
External June 30, 2010 Meeting and documents
(survey
results)
Vincent
Versace
Daniel
Ierodiaconou
Anne Wallis
Moyne Shire
(Planners
breakfast)
External July 7, 2010 Networking and
awareness raising
Vincent
Versace
Anne Wallis
Project
Working Group
Internal 15 July,2010 Presentation/
Documents
Vincent
Versace
Moyne Shire External August 12, 2010 Presentation/
Documents
Vincent
Versace
WestVic Dairy
and Regional
Development
Victoria
External August 13, 2010 Presentation/
Documents
Vincent
Versace
Project
Working Group
Internal August 19, 2010 Presentation/
Documents
Vincent
Versace
Project Steering
Committee
External August 25, 2010 Presentation/Documents Vincent
Versace
Deakin
University
External September 28,
2010
Lecture to unit
Environmental
Planning and
Assessment
Vincent
Versace
Project
Working Group
External December 21, 2010 Meeting Vincent
Versace
Australian
Agricultural
External February 9, 2011 Conference presentation Helen
Scarborough
Page 78 of 175
and Resource
Economics
Society
(AARES)
Conference
La Trobe
University
Students and
Trevor Budge
External February 24, 2011 Presentation Vincent
Versace
Daniel
Ierodiaconou
Project Steering
Committee
Internal March 2, 2011 Presentation/documents Vincent
Versace
Trevor Budge
Corangamite
Shire
Councillors
External March 8, 2011 Presentation Vincent
Versace
Melbourne
University
Students
External March 28, 2011 Presentation Vincent
Versace
Daniel
Ierodiaconou
External
consultant
(Trevor Budge
– La Trobe
University)
External August 17, 2011 Presentation Vincent
Versace
Jacquomo
Monk
Daniel
Ierodiaconou
Project
Working Group
Internal August 17, 2011 Presentation Vincent
Versace
Jacquomo
Monk
Project
Working Group
Internal October 5, 2011 Presentation/documents Ian Fitzgibbon
Jacquomo
Monk
Daniel
Ierodiaconou
Project
Working Group
Internal June 1, 2012 Presentation/documents Brett Davis
Project
Working Group
Internal June 4, 2012 Presentation/documents Brett Davis
WCC
Project
Working Group
Internal July 30, 2012 Presentation/documents Andrew
Mason
Project
Working Group
Internal September 26,
2012
Presentation/documents Andrew
Mason
Page 79 of 175
4 Land Use Assessment and Mapping
4.1 Introduction
The extent to which regional planning impacts on state and national food production is an
important consideration for future land use planning. For example, the dairy industry is
Victoria’s largest export earner and 13 percent of the dairy products traded globally originate
from the State. Within Victorian there are three dairying regions; (1) Northern Victoria and
Riverina, (2) Gippsland, and (3) Western Victoria (Dairy Australia 2009). The Northern
Victoria and Riverina is part of the Murray-Darling Basin and is largely reliant upon
irrigation allocations. During years of low rainfall and low water allocations, dependence
upon bought-in supplementary feeds increases and this seriously undermines the profitability
of dairy enterprises in this region. Despite the recent drought-breaking rainfall events in
northern Victoria in the last two years, much of the last decade has seen below-average
rainfall in the Murray-Darling Basin. It is likely that there will be greater demand for
agricultural land in areas south of the Great Dividing Range. Within regions, production
responses will include introduction of different commodities or varieties more suited to future
climatic regimes (Murphy et al., 2009).
In Western Victoria (the area including the CSC LGA) and Gippsland, the situation is much
different. Although there is limited irrigation activity in Gippsland (the Macalister Irrigation
District), much of the strength of the Western Victoria and Gippsland regions stems from
their dryland pasture base and relatively mild and reliable seasonal climate (O' Toole et al.,
2008 ). The ability to provide stock with on-farm grown dryland pasture and reduce reliance
on bought-in supplementary feeds provides these areas with a substantial cost saving and
competitive advantage. However, competition between agriculture is also a factor that
Page 80 of 175
determines the composition of the landscape. For example, during 1995 to 2002 dryland
pasture was systematically replaced by dryland cropping in the Glenelg Hopkins Catchment
Management Authority region (this area encompasses WCC LGA and overlaps the western
extent of the CSC LGA). This transition typically occurred in northern areas, just to the south
of the Great Dividing Range (Versace et al., 2008).
The conversion of agricultural land to other uses is another major challenge to primary
producers in south west Victoria. The period from 1995 to 2002 also saw the systematic loss
of dryland pasture (i.e. prime grazing areas) to forestry in the form of blue gum plantations
(Eucalyptus globulus) (Versace et al., 2008). Should competition between land uses intensify,
coupled with longer-term forecasts for a climate less conducive to agriculture (Hood et al.,
2006), the decisions taken now regarding preservation of productive arable lands will become
even more relevant.
Decisions regarding the zoning and development of land have the potential to impact upon
agricultural zones. In this project land use assessment and mapping was undertaken to
identify;
• the current extent of land use type (CSC LGA) – this was undertaken to provide an
up-to-date land use map. The last shire-wide land use mapping exercise was carried
out in 2002 (Bureau of Rural Sciences 2002). To contribute to a strategic planning
framework, contemporary data to quantify current conditions is required to inform
recommendations (n.b. this was not carried out due to WCC LGA’s relatively
small geographic footprint and the current zones reflecting the current land use).
Page 81 of 175
• the versatility of agricultural land (WCC LGA) – this was undertaken to quantify
the potential for diversification of land use, which is a key consideration when
planning in agricultural areas (n.b. this was unable to be replicated for the CSC
LGA due to data limitations).
• implications for suitable agricultural land under current and future climate
scenarios (CSC LGA) – this was undertaken to provide an indication of the impact
of a changing climate using best available predictions based upon CSIRO
modelling (n.b. this was not done for WCC LGA as the resolution of spatial
datasets exceeded the area to be modelled).
These matters collectively provide important information for planning decisions.
4.2 Agriculture in Warrnambool City Council Local Government Area
4.2.1 Introduction
Agriculture is an important element of the regional economy within the WCC LGA, with
approximately 11.8 percent of the work force being employed in the agriculture, fishing and
forestry related businesses (ABS 2006). In 2005-06, the WCC LGA produced approximately
$M13.9 of agricultural commodities, with dairy being the biggest contributor (approximately
$M9.3), and meat production (mainly beef) and crops contributing a lesser amount of
approximately $M3.2 and $M1.4, respectively (Table 7). Local farmers have the immediate
advantage of proximity to processing infrastructure, fertile soils and reliable rainfall. The
preservation of the limited supply of agricultural land is necessary for the sustainable
development of primary productivity within the WCC LGA. The retention of this agricultural
land in large areas is also necessary to sustain the agricultural economy of the area and to
support those industries which rely on agricultural products for processing. For example, the
Page 82 of 175
abattoir and saleyards are key infrastructure, which add value to the WCC LGA regional role
in primary production. Importantly, unplanned urban growth into the highly suitable farming
land around the WCC LGA may compromise the viability of the dairy industry and
processing facilities. Accordingly, it is important to assess the current status of existing
agricultural land.
Table 7. Agricultural Value to Warrnambool City Council Local Government Area.
Data based on 2006 Census from Australian Bureau of Statistics
Agricultural commodities Value in 2006 ($M)
Milk 9.3
Meat 3.2
Crops 1.4
Total 13.9
4.2.2 Current Land Use Status in Warrnambool City Council Local Government Area
The versatility rating is an expression of the range of agricultural enterprises that can be
sustainably supported by a particular parcel of land. Using ArcGIS 9.3, raster grid datasets
(100m cell resolution) representing soil texture, soil drainage, soil pH, and soil stability were
summed together following the method in Moyne (David et al., 2009) and Ararat (DPI,
2005). The resultant map is a strategic level tool that provides a good indication of
agricultural quality of land across the WCC. Higher values of agricultural versatility provide
greater long-term security for agricultural production and development. Agricultural
versatility places emphasis on the capacity of the land to support more diverse and intensive
options. However, the scale of mapping does not confirm agricultural land quality at
individual sites and should not replace the need for site analysis of land subject to planning
permits or related matters, by appropriately qualified persons.
Page 83 of 175
The analysis of agricultural versatility across the Warrnambool Shire Council LGA identified
that 71 percent of the farming zone is classified as very highly versatile (Figure 4; Table 8;
Table 9). Approximately 11 percent of the farming zone to the north of Dennington and
North Warrnambool was mapped as versatile land (Figure 4; Table 8; Table 9). Highly
versatile land contributed 18 percent to the farming zone and was mapped along Hopkins
Point Road and south of Dennington (Figure 4; Table 8; Table 9).
Figure 4. Agricultural Versatility in the Warrnambool City Council Local Government
Area.
Page 84 of 175
Table 8. Description of Agricultural Versatility Classes used in the Warrnambool City
Council Local Government Area
Agricultural Versatility
Class
Total of
Versatility
Description
Very high 10-15 Agriculturally versatile land, with high
inherent productive potential through
possessing well structured deep
permeable and stable soils, with optimum
pH (i.e. approximately 6-7), and excellent
drainage. Land suited to a wide range of
agricultural activities at high levels of
productivity with standard management
techniques and skills.
High 8-9.9 The few limitations to agricultural
production are readily overcome by
available management practices. Requires
a higher level of inputs to achieve the
same versatility as very high Class.
Ranges from very good grazing, dairying
and/or cropping land, to land of moderate
productivity unsuitable for cropping.
Soils more variable, imperfectly to easily
drained, moderately stable soils, with
moderate pH (i.e. approximately 5).
Where irrigation water becomes available
to extend the season, range of enterprises
and productivity, affected areas can be
highly productive and versatile.
Versatile 5-7.9 Usually low to average versatility. Can
sustain grazing and crop production, but
requires the use of no-till practices to
prevent erosion, maintain soil structure
and raised beds for drainage. Flooding
frequency may be a constraint. With high
inputs, high versatility levels may be
achieved.
Table 9. Area Cover for Agricultural Versatility Classes in Warrnambool City Council
Local Government Area
Agricultural Versatility
Class
Area (ha) Percentage
Very highly versatile 8483 71
Highly versatile 2213 18
Versatile 1285 11
Total 11981 100
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4.3 Key Findings – Agriculture in Warrnambool City Council Local
Government Area
While farm values in remote areas are primarily driven by the profitability of
agriculture, in areas close to cities values are influenced by the potential for
subdivision and sale for other uses (Murphy et al., 2009). This appears to be the case
in WCC where the City has expanded over what was traditionally agriculturally viable
land.
As the environmental factors used to assess the agricultural versatility of land within
WCC LGA do not appear to influence the pattern of expansion, economic factors may
potentially be more important. These economic factors (e.g. land values) have been
explored in section 6 Rural Residential and Rural Living Development.
Across Victoria, there is a trend for a consolidation of farms, and the influence of
lifestyle blocks in the WCC LGA FZ is likely to have a greater influence through
fragmentation and uses other than food and fibre production.
4.4 Agriculture in Corangamite Shire Council Local Government Area
4.4.1 Introduction
Agriculture, forestry and fishing are the predominant industries and employ approximately
32.5 percent of the working population within the CSC LGA (ABS, 2006). In 2005-06, the
CSC LGA produced approximately $M479.1 of agricultural commodities, with dairy and
wool being the biggest contributor (approximately $M316.9), and meat production (mainly
beef and lamb) and crops contributing a lesser amount of approximately $M99.1 and $M63.1,
respectively (Table 10). This results in CSC LGA contributing to approximately 19% of
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agricultural production in Victoria (ABS, 2006). Local dairy farmers in the south of the LGA
(i.e. below the Princes Highway) have the advantage of fertile volcanic soils and reliable
rainfall, while the flat plains in northern regions of the LGA provide ideal conditions for
cropping and sheep farming. Given the importance of agriculture to the local economy, the
preservation of the agricultural land is necessary for the sustainable development of primary
productivity within the CSC LGA. Importantly, unplanned urban growth into the highly
suitable farming land around the CS LGA may compromise the viability of the agriculture
industry. Accordingly, it is important to assess the current status of existing agricultural land.
Table 10. Agricultural Value to Corangamite Shire Council Local Government Area.
Data based on 2006 Census from Australian Bureau of Statistics
Agricultural commodities Value in 2006 ($M)
Milk/Wool 316.9
Meat 99.1
Crops 63.1
Total 479.1
4.4.2 Current Land Use Status in Corangamite Shire Council Local Government Area
Agricultural versatility analysis was not analysed for the CSC LGA due to data limitations
(e.g. no soil texture data could be obtained for the entire LGA). Alternative, a new map was
generated to identify the current extents of existing land use classes (Table 11; Figure 5). This
land use map was derived from LandSat 5TM imagery and spatial data on existing land use.
Over four days, physical site inspections were undertaken to obtain the different land use
types (Figure 5). Two current LandSat images were available, however the 2011 image had a
high degree of cloud cover and shadowing, which adversely affects mapping efforts (see
Figure 6; Figure 7). The field data collected representing the various land uses in the CSC
lGA were overlayed on the 2008 LandSat imagery. For the land use classes a statistical
relationship was developed using a Quick, Unbiased, Efficient Statistical Tree (QUEST)
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method within the software ENVI 4.8 (ITTVIS). For more details on the QUEST see Loh and
Shih (1997). These relationships were then used to predict seven land use classes in the image
beyond the limited field sites. This approach allowed the prediction of land uses classes
across the entire CSC LGA at a 30-m resolution. (Table 11; Figure 8).
An estimate of error associated with these predictions was also undertaken. The field data
were partitioned into 70 percent for developing the statistical relationships, and 30 percent for
the assessment of error in the map (individual class and overall accuracies). Additionally, the
user’s and producer’s accuracies (Story and Congalton, 1986) are also reported here as a
measure of accuracy for individual classes within the overall accuracy. Producer’s accuracy
represents the error probability of a reference pixel being correctly predicted, while user’s
accuracy is representative of the probability that a predicted map pixel actually represents
that category on the ground (Jensen, 2005).
Table 11. Description of Mapped Land Use Classes.
Land use class Description
Crop Dryland crop class comprised of cereal crops such as barley
and wheat
Hardwood Hardwood timber class comprised of blue gum plantations
and coppice monoculture for wind break/fire wood
Pasture Pasture class comprised of fodder pasture for dairy, beef and
sheep grazing
Remnant Vegetation Remnant vegetation class comprised of native vegetation
types included old growth forest, regrowth forest, coastal
scrub, riparian vegetation and roadside vegetation
Softwood Softwood timber class comprised of pine plantations
Urban Urban class included towns, large rural industrial sheds (e.g.
milking infrastructure), large houses, roads and township
infrastructure (e.g. houses, shops)
Water Water body class included all areas subject to regular
inundation by freshwater (e.g. swamps, wetlands and lakes)
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Figure 5. Ground truth Locality used in the Mapping of Land Use Classes within
Corangamite Shire Council Local Government Area.
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Figure 6. The 2008 LandSat 5TM Image used in the Mapping of Land Use Classes
within Corangamite Shire Council Local Government Area.
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Figure 7. The 2011 LandSat 5TM Image Showing Cloud Cover and Shadows for
Corangamite Shire Council Local Government Area.
Clouds
Cloud
shadows
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The land use map returned an excellent overall accuracy of 90 percent. This statistic indicates
that nine out of 10 times our overall prediction is correct. The water, remnant vegetation and
pasture classes were predicted with the highest accuracies (96, 96; 90, respectively; Table
12). Albeit slightly less than the other classes, the remaining softwood, crop, hardwood and
urban land use classes also returned high accuracies (83, 86, 83, 83, respectively; Table 12).
Pasture was found to cover 49 percent of the CSC LGA, and was mainly confined to south of
the Princes Highway (Figure 8; Table 13). North of the Princes Highway crops dominated the
landscape (approximately 19 percent of the CSC LGA; Figure 8; Table 13). Remnant
vegetation covered approximately 11 percent of the CSC LGA and was confined to the south-
eastern regions and along the coastal fringe (Figure 8; Table 13). Water bodies were mapped
throughout the CSC LGA and covered approximately 12 percent of the landscape (Figure 8;
Table 13). The soft and hardwood timber plantations covered considerably less area
compared to the other land uses (Figure 8; Table 13). The majority of hardwood plantations
were confined south of the Highway, whilst the softwood class was mainly found east/south-
east of Skipton (Figure 8). The urban class included large sheds and hard surfaces (e.g. roads,
car parks) and covered approximately 5 percent of the CSC LGA.
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Table 12. Error Assessment of Land Use Classes for Corangamite Shire Council Local Government Area, including the User’s and
Producer’s Accuracies. The User’s Accuracy is Representative of the Probability that a Predicted Map Pixel Actually Represents that
Category on the Ground. Producer’s Accuracy (in Italics) Represents the Error Probability of a Reference Pixel being Correctly
Predicted.
Groundtruth
(percent )
Class Crop Hardwood Softwood Pasture Water Remnant Vegetation Urban Total User’s
Crop 83 2 2 5 0 0 2 14 91
Hardwood 5 83 0 1 0 1 2 13 88
Softwood 0 0 86 0 0 0 0 4 99
Pasture 6 3 0 90 0 2 10 13 77
Water 0 0 0 0 97 0 0 6 99
Remnant Vegetation 3 11 11 1 2 96 4 41 92
Urban 3 1 0 3 1 1 83 9 87
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Figure 8. Current Map of Land Use in Corangamite Shire Council Local Government
Area
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Table 13. Area Cover for Land Use Classes in Corangamite Shire Council Local
Government Area
4.4.3 Dairy suitability
To provide an estimate of the suitability of dairy production across the CSC LGA and how
this may change under future climate scenarios, a predictive model was developed. Maximum
entropy (MAXENT; Phillips et al., 2006) was used to combine dairy localities obtained from
Dairy Australia (Figure 9) with environmental variables. Altitude variables and climatic
variables were acquired from BIOCLIM datasets (Hijmans et al., 2005;
http://www.worldclim.org/), and soil type was obtained from Robinson et al., (2003). The 18
BIOCLIM variables were derived from the monthly temperature and rainfall values in order
to generate more biologically meaningful variables (Hijmans et al., 2005). The BIOCLIM
variables represent annual trends (e.g. mean annual temperature), seasonality (e.g. annual
range in temperature) and extreme or limiting environmental factors (e.g. temperature of the
coldest and warmest month). For the MAXENT model of dairy suitability, the four least
correlated (i.e. less than 0.7 spearman’s coefficient) of the 20 variables were selected,
including; mean diurnal range (i.e. Mean temperature of monthly * (max. temp. – min.
temp.)), minimum temperature in the coldest month, soil type and altitude.
Land use Hectares Percentage
Crop 82944.00 18.77
Hardwood 17126.64 3.87
Pasture 218311.80 49.39
Remnant Vegetation 48409.47 10.95
Softwood 1717.92 0.39
Urban 20656.41 4.67
Water 52834.41 11.95
Total 4420000.60 100.00
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The MAXENT model showed that highly suitable dairy is confined to regions south of the
highway (Figure 10a) Using bioclimatic data, based on Intergovernmental Panel on Climate
Change (IPCC) scenarios (also from BIOCLIM) for 2040, a predicted contraction of suitable
dairy land was observed (Figure 10b). It must be noted that dairy locations are based on rural
mail box locations, which may not reflect the actual dairy locations. Additionally, although
future predictions are based on the best available CSIRO modelled BIOCLIM datasets, the
scale of predictions does not confirm dairy land suitability at individual sites. Nonetheless
these predictions provide another layer of strategic information to assist long-term planning
efforts.
Figure 9. Localities Dairy Producers Obtained from Dairy Australia in the Corangamite
Shire Council Local Government Area.
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Figure 10. MAXENT Predictions of Dairy Suitability under Current Climate (a) and Dairy Suitability under 2040 Climate (b). Water
Bodies are shown in Black.
a) b)
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4.4.4 Cropping suitability
To provide an estimate of the suitability of cropping across the CSC LGA and how this may
change under future climate scenarios, another MAXENT model was developed. The
MAXENT model combined ground truth points (Figure 11) with environmental variable
acquired from BIOCLIM datasets. For the MAXENT model of crop suitability, the seven
least correlated (i.e. less than 0.7 spearman’s coefficient) of the 18 bioclimatic variables
were selected, including; maximum temperature of warmest month, precipitation of wettest
month, soil type, temperature seasonality (i.e. standard deviation of mean annual
temperature*100), precipitation of driest month, mean temperature of driest quarter, and
isothermality (i.e. (mean diurnal range/(max. temp. of warmest month – min. temp. of coldest
month))*100).
The MAXENT model showed that highly suitable cropping is confined to regions north of
the Highway between Lismore and Skipton (Figure 12a). By contrast, the predictions based
on the IPCC 2040 scenario showed a southward trend of suitable cropping land (Figure 12b).
Similar to the suitability predictions for dairy, changes in cropping predictions are based on
the best available CSIRO modelled BIOCLIM datasets. Accordingly, the scale of predictions
does not confirm cropping land suitability at individual sites. Nonetheless these predictions
provide another layer of strategic information to assist long-term planning efforts.
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Figure 11. Localities of Cropping Obtained from Ground truthing in the Corangamite
Shire Council Local Government Area.
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Figure 12a. MAXENT Predictions of Crop Suitability under Current Climate Conditions (a) and Crop Suitability under 2040 Climate
(b). Water Bodies are shown in Black.
a) b)
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4.5 Key Findings – Agriculture in Corangamite Shire Council Local
Government Area
The CSC LGA contributes to 19 percent (M$479) of agricultural production in
Victoria
Agriculture, forestry and fishing are the predominant industries and employ
approximately 32.5 percent of the working population within the CSC LGA
The south of the CSC LGA (i.e. below the Princes Highway) has the advantage of
fertile volcanic soils and reliable rainfall,
The flat plains in northern regions of the LGA provide ideal conditions for cropping
and sheep farming.
Given the importance of agriculture to the local economy, the preservation of
agricultural land is necessary for the sustainable development of primary productivity
within the CSC LGA.
Based on the mapping undertaken in this project, pasture was found to dominate 49
percent the CSC, and was mainly confined to south of the Princes Highway
North of the Princes Highway crops dominated the landscape.
Remnant vegetation covered approximately 11 percent of the LGA and was confined
to the south-eastern regions and along the coastal fringe.
The predictive modelling showed that highly suitable dairy is currently confined to
regions south of the highway.
The predictive model for suitable cropping currently favours regions north of the
Highway between Lismore and Skipton.
The 2040 prediction indicates a southward trend of suitable cropping land.
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Accounting for the southerly expansion of suitable cropping areas, there may be some
conflict with dairy enterprises. Of particular interest are the parcels within an
approximate 10km radius of Lake Purrumbete.
The eventual fate of these parcels will be decided upon economic realities (e.g.
commodity prices) and geological constraints (e.g. the nature of the Stony Rises area
does not lend itself to large scale cultivation of crops).
The predictions generated for cropping and dairy predictions provide another layer of
strategic information to assist long-term planning efforts.
5 Tourism
Tourism developments form a growing part of the south-west Victoria’s economic base (ABS
2006). Decisions regarding the zoning and development of land for tourism have the potential
to impact upon agricultural zones. The importance of tourism are highlighted in the below
sections for the WCC and CSC LGAs, respectively.
5.1 Tourism in Warrnambool City Council Local Government Area
5.1.1 Introduction
Warrnambool is a popular tourist destination with an extensive retail centre based around
Liebig Street, Kepler Street, Koroit Street, Timor Street and Raglan Parade, linked to the
ocean by coastal reserves and parkland. There are many historic buildings within the city
centre, including; the post office (built in 1870), courthouse (1871) and Western Hotel
(1869).
Warrnambool enjoys a good variety of coastal attractions. The main swimming beach is the
patrolled sandy expanse situated at the top of Lady Bay. Behind the beach is the 34 ha Lake
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Pertobe Adventure Park with its playgrounds, fitness equipment, BBQs, a kiosk, and a large
lake with footbridges, islands and paddle boats. At Logans Beach, adjacent to the mouth of
the Hopkins River, is a whale viewing platform, making it one the region's best observation
points for southern right whales during the calving season (i.e. June to September).
Fishing is popular from the breakwater constructed at the western end of Lady Bay, while to
the west of the breakwater are two islands, sheltered swimming areas at the sandy mouth of
the Merri River, and the attractive rocky coastal features of Merri Marine Sanctuary. Since
the mid-2000s there has been increased visitation to south west Victoria by game fishers
chasing the annual run of southern bluefin tuna (Thunnus maccoyii) (Department of Primary
Industries, 2012). The ports that have benefitted most from this tourism influx have been
Portland, Port Fairy and Warrnambool. However, anecdotal evidence suggests Warrnambool
is being overlooked in favour of Portland and Port Fairy due to superior launching facilities
for large vessels (The Warrnambool Standard, 2012).
As well as the extensive coastal reserves lined with walkways, Warrnambool boasts a number
of attractive parks and gardens including the colourful Fletcher Jones Gardens, set within the
grounds of the clothing factory and floodlit at night. The Botanic Gardens are laid out around
a large lily pond which is rich in bird life, and include a rotunda, fernery and a diversity of
other plant life.
Warrnambool's rich maritime history can be explored at Flagstaff Hill, which is a recreated
19th
century sea port with interactive displays and buildings created from authentic materials.
Warrnambool also hosts a variety of events throughout the year that attract large numbers of
visitors to the City. In the July school holidays each year it is estimated 25,000 people attend
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the Fun 4 Kids Festival which is held in the city centre (http://www.fun4kids.com.au/). Over
the early part of the year multiple speedway events are held at the Premier Speedway. In
January 2011 six events were held and attracted approximately 41,000 visitors. A survey
conducted during this period (500 interviews) revealed 87 percent of respondents only visited
the area because the Premier Speedway was staging an event. An estimate of the economic
benefit to the region range between $2.5 M and $3M (Dr Scott Salzman, Deakin University,
pers. comm.).
5.2 Key Findings – Tourism in Warrnambool City Council Local
Government Area
Logans Beach provides one of the most popular land-based whale viewing areas in
Victoria.
There is much potential to increase the visitor rates of game fishers to Warrnambool,
however significant upgrades of the launching infrastructure is required.
The annual Premier Speedway and the Fun 4 Kids festival attract large numbers of
visitors to the Warrnambool region.
Tourism development is unlikely to have a measurable effect on WCC LGAs
agricultural productivity as the 71 percent of the land is classed as very highly
versatile (see section 4.2.2). It will be difficult to attribute any decrease in agricultural
output from the WCC to tourism development. The output will be far more influenced
by climatic conditions, commodity prices and the types of agricultural ventures
undertaken.
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5.3 Tourism in Corangamite Shire Council Local Government Area
5.3.1 Introduction
Tourism, while proportionately does not contribute to the region’s employment to the same
extent as agriculture, still forms a significant and growing part of the shire’s economic base.
The internationally recognised Great Ocean Road that borders the southern extent of the
study area is highly scenic and has high biodiversity value. The Port Campbell National Park
and Bay of Islands Coastal Park together form a linear reserve along the coastline. Other
tourism sites in the shire also embrace the aesthetic appeal of the natural environment.
Further inland, the Lakes and Craters region form part of the Victorian Volcanic Plain
bioregion. The Victorian Volcanic Plain is characterised by numerous eruption points
including scoria cones, stony rises and lava flows (Ollier, 1971). Lake Bullen Merri and Lake
Gnotuk are both internationally recognised for their scientific, environmental and landscape
significance. The significance of the region’s volcanic heritage has been recognised and
much of the Shire is contained in the Kanawinka Geopark which is part of the Global
Geoparks Network.
Recently the CSC, with support from Tourism Victoria and the Department of Planning and
Community Development, commissioned work examining tourism opportunities in the region
(Urban Enterprise, 2010). Currently visitation to the CSC LGA is dominated by day-trippers.
Of the estimated 2.6 million visitors to the shire annually, around 400,000 stay overnight
(Urban Enterprise, 2010). This document identified areas in the southern half of the CSC
LGA as having the majority of the tourism attractions. Specifically the areas surrounding
Camperdown, Port Campbell, Port Campbell National Park, Princetown and Peterborough
were highlighted. In addition, the coastal hinterland area including Timboon is also a
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developing tourism node. These findings were consistent with a data-driven approach used by
Versace et al., (2011).
5.4 Key Findings – Tourism in Corangamite Shire Council Local
Government Area
Tourism forms a significant and growing part of the shire’s economic base.
Many of the tourism attractions in the shire embrace the aesthetic appeal of the natural
environment.
Currently visitation to the CSC LGA is dominated by day-trippers – converting these
to overnight stays is a strategic challenge.
The Tourism Opportunities Study provides a comprehensive overview and analysis of
the state of play in the CSC LGA.
6 Rural Residential and Rural Living Development
6.1 Introduction
Farm consolidation in Victoria is increasing as farmers face declining terms of trade, climatic
pressures (Murphy et al., 2009) and changes in technology and the efficient scale of
production. In 2003-04 the average farm size was 430 ha compared to 296 ha in 1976-77
(Taylor et al., 2006). Larger numbers of lifestyle blocks interspersed throughout rural areas
clearly present challenges to farmers trying to consolidate their holding to increase return on
investment in capital, spread the risks associated with operating in a global market and
respond to changing consumer demands (Murphy et al., 2009).
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6.2 Influence of ‘Lifestyle’ blocks on surrounding Farming Zone in
Warrnambool City Council Local Government Area
6.2.1 Planned Conversion of Agricultural Land in Warrnambool City Council Local
Government Area
The Warrnambool Land Use Strategy (Parsons Brinckerhoff 2004) has been adopted by
council as the strategic plan to shape Warrnambool’s future land use and development. Four
areas have been identified as major residential growth corridors for immediate development
to satisfy the estimated 1950 lots required over the forthcoming 15 years. Assessment of
zoning transitions was based upon a cross-tabulation matrix using the planning zone
information from 1999 (t1) and the proposed planning zones of 2009 including the proposed
growth boundaries (t2). To accommodate this analysis, planning zones were reclassified using
ArcGIS 9.3 into four major zone groups: urban; flood/water; conservation and farmland.
Specific zones (e.g. Residential; Business; Industrial) were not used as the development of
the growth areas are at different stages and the zones have not been finalised. Nonetheless, as
these areas have been identified by Parsons Brinckerhoff (2004) and adopted by council, the
eventual fate of these areas is for conversion to urban use in one form or another.
Landscape changes were summarised in terms gain and loss (Pontius et al., 2004). The
measures of gain and loss have typically been used in the past to assess changes that have
already occurred (Alo and Pontius 2008; Versace et al., 2008). This is a new application of
this methodology that allows a future assessment in the change of zoning, which is
effectively a change in land use.
The cross-tabulation transition matrix showed Farm and Urban Zones covered the greatest
area in the WCC LGA, with 58.54 percent and 29.63 percent persisting between t1 and t2
respectively (Table 14). Urban land use is set to have the largest gain following the
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implementation of growth boundaries in t2. This is almost entirely at the expense of the Farm
Zone, which is set to have the largest loss in area. Flood/Water and Conservation land uses
registered virtually no change (Table 15).
Table 14. Cross-tabulation Zone Transition Matrix for 1999 (t1) and Planned
Conversion greater than 2009 (t2). Persistence of the Zones can be Read Along the
Diagonal. All Values are Percentages.
Urban Flood/Water Conservation Farmland Total
1999
Urban 29.63 0.05 0.00 0.03 29.72
Flood/Water 0.17 2.64 0.00 0.02 2.83
Conservation 0.01 0.00 3.22 0.02 3.25
Farmland 5.52 0.12 0.03 58.54 64.20
Planned Conversion
greater than 2009
35.32 2.82 3.25 58.61
Table 15. Summary of Zone Transitions for 1999 (t1) and Planned Conversion greater
than 2009 (t2).
Gain Loss
Urban 5.70 0.08
Flood/Water 0.17 0.19
Conservation 0.03 0.03
Farmland 0.07 5.67
6.2.2 Unplanned conversion of agricultural land in Warrnambool City Council Local
Government Area
Economic theory provides a framework for the optimal allocation of scarce resources, such as
land (Versace et al., 2011). This theory suggests that land, like all scarce resources, should be
allocated to its highest value use. Figure 13 illustrates the comparison of the marginal net
benefits of land for agricultural (MBAg) and residential use (MBRes). The horizontal axis
represents the land parcel size and the vertical axis the market value of the land per square
metre. It is assumed that for smaller land parcel sizes agricultural production will not be
viable, hence the residential value of the land is higher than the agricultural value.
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Conversely, for larger parcels of land the residential value of the land is lower than the
agricultural value. Theoretically, an optimal allocation for society is when land parcels below
size A are used for residential use and those larger than A are used for agricultural use. In
essence, the marginal benefit of the smaller land parcels is greater for residential uses than
agricultural uses hence any allocation of land parcels smaller than A from agricultural to
residential use increases total welfare to society. In a functioning land market, this change
will occur without intervention as farmers realise the market value of their land and subdivide
traditional agricultural land. A limitation of this analysis is that it does not include any
external costs or benefits of land use, and only considers benefits to the landholder.
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Figure 13. Theoretical Market Model Indicating the Efficient Allocation of Land. Mbres
= Marginal Benefit for Residential Land. MBAg = Marginal Benefit for Agricultural
Land.
Linear regression was used to estimate the relationship between land area and land value. To
satisfy the assumptions of this statistical test a natural log transformation was carried out on
both the independent (land area) and dependent (land value) variables. Across the study area
using all the parcel data there was a significant negative relationship between land parcel size
and land value per square metre (Figure 14). Relationships were stronger when analysing the
residential zones compared to the agricultural zones. Furthermore, β-values for the residential
model (-0.802) were always considerably steeper than the agricultural zone models (-0.555;
Figure 14).
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Figure 14. The Efficient Allocation of Land Based upon Classification of Parcels Using
Australian Valuation Property Classification Codes for Warrnambool City Council
Local Government Area (A= 10.215 approximately 2.730 ha).
The assumption of these analyses is land that is subdivided will be converted from agriculture
to residential use. These analyses do not make any assumptions about the provision of
services or geological suitability for dwelling construction, although existing public road
access passes all parcels to be divided. Of the 482 parcels, 60 exceeded 30 ha and in the event
they were subdivided to their full potential (i.e. divided into greater than 15 ha parcels) the 60
parcels would become 238 parcels (Table 16). The current site value of the 60 parcels is
AU$66,343,000. Applying the coefficients of the residential model as a predictive model
indicates the value of the land area following subdivision would increase to AU$84,975,000
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(approximately 28 percent). Essentially this process is converting parcels with AVPCCs of
525(Livestock Production – Dairy Cattle), 530 (Mixed farming and grazing) and 561
(Vineyard) to AVPCCs of 100 (Vacant Residential Home Site/Surveyed Lot), 110 (Detached
Home) and 151 (Miscellaneous Improvements on Residential Rural Land). Hence, this
analysis suggests that the currently unrealized potential gain from land conversion within the
current planning provisions is around $18.6 million.
Table 16. Number of Parcels within the Warrnambool City Council Local Government
Area. Parcels greater than 30 ha are Potential Candidates for Subdivision According to
Prevailing Farming Zone Schedule.
Size Number of
parcels
<1ha 65
1 - 2.7ha 154
2.7 - 5ha 61
5 - 10ha 51
10 - 15ha 16
15 - 20ha 36
20 - 30ha 39
> 30ha 60
While this analysis considers potential subdivision within the existing planning provisions,
these models can also be used to estimate the land parcel size that would optimise the
allocation of land between residential and agricultural uses from a purely theoretical
economic perspective. Simultaneously solving for two unknowns (y) in the residential and
farming equations, indicates that for the AVPCC model the marginal value of land parcel size
is greater for residential use than farming use for parcel sizes below 2.730 ha and for the sub
market group (SMG) model for parcel sizes below 1.617 ha (Figure 14).
This exercise highlighted that the WCC LGA exhibited no clear pattern in parcel size (Figure
15). Of these Farming Zone parcels, 74 percent are already occupied with the remaining 26
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percent being vacant (Figure 16; Table 17), with some large vacant parcels north of
Warrnambool and Dennington and along Hopkins Point Road (Figure 15; Figure 16).
Figure 15. Current parcels sizes within the Warrnambool City Council Local
Government Area. Parcels greater than 30 ha are potential candidates for subdivision
according to prevailing Farming Zone Schedule.
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Figure 16. Vacancy rate of parcels within the Farming Zone in Warrnambool City
Council Local Government Area. Parcels greater than $70,000 capital improvement
based on the 2010 Australian Valuation Property Classification Codes are identified as
occupied in the Farming Zone Schedule.
Table 17. Number of vacant parcels within the Farming Zone in Warrnambool City
Council Local Government Area. Parcels greater than $70,000 capital improvement
based on the 2010 Australian Valuation Property Classification Codes are identified as
occupied in the Farming Zone Schedule.
Vacancy rate Number of parcels
Occupied 356
Vacant 126
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In addition to the theoretical market model value and occupancy analysese, a hotspot analysis
was undertaken to identify the influence of ‘lifestyle’ blocks on surrounding farm land. The
hotspot analysis tool in ArcGIS 9.3 was used to analyse each land parcel within the context of
neighbouring parcels in the Farming Zone for both LGAs. To be classified as a hotspot, a
parcel will have a high value and be surrounded by other parcels with high values (for further
details on Hotspot Analysis see
http://webhelp.esri.com/ARCGISDESKTOP/9.3/index.cfm?TopicName=Hot_Spot_Analysis_(Getis-
Ord_Gi*)_(Spatial_Statistics). This analysis was based on land value in AU$ per square metre.
Hotspot analysis for the WCC LGA indicated that there was clustering of high-value land
east of Allansford, along the eastern end of Hopkins Point Road, and north-west of
Dennington (shown in red in Figure 17). By contrast, clustering of low value parcels were
observed north of Merrivale, around Bushfield, and west of Rowans lane (shown in blue in
Figure 17). This provides information complementary to Figure 16 as the hotspot analysis
accounts for both parcel size and land value, whereas Figure 16 accounts only for land size.
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Figure 17. Hotspot Analysis of Land Value for the Farming Zone in the Warrnambool
City Council Local Government Area
6.2.3 Public perceptions of urban expansion in the Warrnambool City Council Local
Government Area
Since there is an emphasis on maintaining valuable agricultural land, urban consolidation
provides a viable option to reduce the urban footprint whilst allowing population increases.
However, urban consolidation is often a contentious issue in rural towns (Hillier et al., 1991).
To gain an understanding of the community’s acceptance of two potential future scenarios for
WCC urban footprint a survey of residents was undertaken across four survey sites (i.e.
Centro Shopping Centre, Target Plaza, Gateway Shopping Centre and Safeway in Norfolk
Plaza; for details see; Hanigan 2011). This survey offered two scenarios to residents for what
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WCC urban footprint may look like in 2035 with a population estimated to be approximately
45,000:
Scenario 1) If the city continues at a living density of approximately 7 people per hectare
the urban footprint will be approximately 5694 ha; which is an increase of 1444ha of land
covered by urban development (Figure 18).
Scenario 2) If the current density of approximately 7 people per hectare is increased to
approximately 10 people per hectare there will be no increase in land covered by urban
development (i.e. approximately 4250 ha; Figure 18). This includes access the same
amenities as current available (e.g. access to bus stops, access to ‘open spaces’).
To develop current and future scenarios the urban footprint needed to be defined. For the
current urban footprint, business zones, residential zones, industry zones, low density
residential zone, mixed use zone, public conservation and resource zone, public parks and
recreation zone, public use zones, roads , rural living zone, special use zones, town zone and
urban floodway zones from VicMap spatial dataset were used (Figure 18).
A different approach was used for the generation of the future scenario. Wood et al., (2008)
suggest that the key to increasing the health and wellbeing of a neighbourhood is to be able to
walk to features such as shops, open spaces, schools and public transport. Accordingly, the
assessment of residential suitability used GIS layers of public open spaces, roads, business
zones (i.e. zone 1 and 2), schools, bus stops and residential 1 zone (Table 18). Euclidean
distance to each of these features was calculated in ArcMap 9.3. For each feature, this
distance raster dataset was ranked according the methods outlined by Carr and Zwick (2007).
This resulted in each distance to feature raster dataset being ranked from 1 (low suitability) to
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20 (high suitability). These six raster datasets were then summed together to estimate the
residential suitability for the future scenario. The current urban limit was masked out and an
area of 1444ha of the next most suitable land was selected to provide an estimate of urban
expansion (Figure 18).
Of the 165 people who participated in the survey 60 percent chose Scenario 1 as their
preferred future for Warrnambool’s urban development (i.e. a future where there was to be no
change in the living density of people; Table 19). By contrast, 31 percent preferred Scenario
2, which was a future where increased density of housing and would result in no increase in
urban footprint (Table 19).
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Table 18. Data used to Map the Extent of the Urban Footprint.
Data Description Source
Schools Wbool Shape file of every school in the
WCC LGA
Vic Map
Bus Stops Polygons of all bus stops in
WCC LGA
Created by Hanigan
2011
Open Spaces Shape file of all open spaces
(green spaces) in WCC LGA
Vic Map
Roads All roads in municipality of
Warrnambool
Vic Map
Residential zones Residential zones in the WCC
LGA
Vic Map
Business zones Business zones in the WCC
LGA
Vic Map
Figure 18. Urban Expansion Scenarios for 2035 with an Estimated Population of 45,045.
Pink shows Projected Urban Footprint If a Density of 7 People per Hectare is
Maintained (Scenario 1). Blue Indicates the Current Urban Footprint which can be
Maintained for a Population 45,045 if Densities are Increased to 10 People per Hectare
(Scenario 2).
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Table 19. Results from Survey of Warrnambool City Council Local Government Area
Residents in Response to two Future Urban Expansion Scenarios
Scenario Number of responses
Same living density, urban footprint expansion 99
Increased density, unchanged urban footprint 51
Unsure 6
Neither 9
Total 165
6.3 Key Findings – Rural and Residential (Warrnambool City Council Local
Government Area)
A negative relationship between land parcel size and land value per square metre was
established.
Relationships were stronger when analysing the residential zones compared to the
agricultural zones.
The current site value of the 60 parcels that the research identified as being eligible
for subdivision under the current planning scheme (i.e. greater than 30ha) is
AU$66,343,000. Applying the predictive model indicated the value of the land area
following subdivision would increase to AU$84,975,000.
This process virtually converted parcels with AVPCCs of 525 (Livestock Production
– Dairy Cattle), 530 (Mixed farming and grazing) and 561 (Vineyard) to AVPCCs of
100 (Vacant Residential Home Site/Surveyed Lot), 110 (Detached Home) and 151
(Miscellaneous Improvements on Residential Rural Land).
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Urban land use is set to have the largest gain (approximately 640 ha) following the
implementation of the proposed growth boundaries. This is almost entirely at the
expense of Farming Zone, which is set to have the largest loss in area.
Hotspot analysis for the WCC LGA indicated clustering of high-value land east of
Allansford, along the eastern end of Hopkins Point Road, and north-west of
Dennington.
Clustering of low value parcels were identified by the hotspot analysis north of
Merrivale, around Bushfield, and west of Rowans lane.
A large proportion of parcels greater than 30ha already have a dwelling on them.
The 15ha figure does not appear to be relevant when examining the demand curve
data (see Figure 15 and associated text).
Despite southwest Victoria being identified as a major milk producing region and
dairy farms being a prominent feature of the south west Victorian landscape, just two
of the 349 parcels analysed here were classified as AVPCC 525 (Livestock production
– Dairy cattle). Although this may superficially appear to underestimate the number
of dairy farms in the study area, it is consistent with anecdotal reports/concerns of a
change in land use from farming to urban areas.
Obtaining reliable data on the location and extent of historical dairy enterprises to
quantify their loss is likely to remain a difficult process.
When considering the fragmentation of farmland and conversion to residential use, no
parcels in the WCC LGA Farming Zone were classified as 117 (Residential
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Rural/Rural Lifestyle). Properties described under this AVPCC include single
dwellings on a larger allotment (greater than 1 ha and less than 20 ha) in a rural, semi-
rural or bushland setting where primary production uses and associated improvements
are secondary to the value of the residential home site use and associated residential
improvements.
Currently there appears to be no available information on the proportion of lifestyle
properties in the study area (i.e. 117 Residential Rural/Rural Lifestyle). It is required,
if for no other reason, to assess if the Farming Zone as a whole is delivering what the
Planning Scheme intends. The strategic purpose(s) of the Farming Zone include
providing the use of land for agriculture, encouraging the retention of productive
agricultural land, and ensuring that non-agricultural uses, particularly dwellings, do
not adversely affect the use of land for agriculture.
Future work quantifying lifestyle properties will be of assistance to strategic planners
and policy-makers. However, this would be an expensive exercise that would require
extensive site visits and possibly acquisition of detailed satellite or aerial imagery. In
order to achieve this a large investment would be required. However the framework
for this classification already exists in the technical document (see section 4.4 of the
technical document).
Of the 165 people who participated in the survey 60 percent chose a future where
there was to be no change in the living density of people as their preferred option for
Warrnambool’s urban development.
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6.4 Influence of ‘Lifestyle’ Blocks on Surrounding Farming Zone in
Corangamite Shire Council Local Government Area
6.4.1 Unplanned Conversion of Agricultural Land in Corangamite Shire Council Local
Government Area
As with WCC LGA a linear regression was used to estimate the relationship between land
area and land value. A natural log transformation was carried out on both the independent
(land area) and dependent (land value) variables to satisfy the assumptions of this statistical
test. Across the study area using all the parcel data there was a significant negative
relationship between land parcel size and land value per square metre (Figure 19).
Relationships were stronger when analysing the residential zones compared to the
agricultural zones. Furthermore, β-values for the residential models for north and south of the
Princes Hwy were -0.837 and -0.885, respectively, and were always considerably steeper than
the agricultural zone models (-0.346 and -0.185, respectively; Figure 19).
As with the WCC LGA analysis these analyses also do not make any assumptions about the
provision of services or geological suitability for dwelling construction, although existing
public road access passes all parcels to be divided. A total of 1402 parcel were identified as
eligible for subdivision (i.e. greater than 80ha; Table 20). The CSC LGA regression analysis,
however, exhibited a weak linear relationship. This was in contrast to the WCC LGA
regression analyses where a strong linear relationship was evident, and therefore precluded
the use of the coefficients for predictive purposes in CSC LGA.
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The regression analysis indicated that the optimal size of land allocation was 4.9 ha (Figure
19). This suggests that parcels smaller than this value more suitable to residential
development (Figure 19). However, as with the WCC LGA analysis it is not without
limitations.
As with the WCC LGA, parcel sizes were mapped to determine if there were any spatial
patterns. South of CSC LGA there was a high degree of parcel fragmentation, while in the
north land was more homogenous (i.e. larger adjacent larger parcels; Figure 20). However, no
clear breakpoint was evident when analysing the CSC data and this method was unable to be
applied to determine occupancy rates in the FZ.
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Figure 19. The Efficient Allocation of Land Based upon Classification of Parcels using
AVPCCs for Corangamite Shire Council Local Government Area. a) North of the
Princes Highway (A= 10.8 approximately 4.9 ha). b) South of the Princes Highway (A=
10.8 approximately 4.9 ha).
A
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Figure 20. Current Parcels Sizes within the Corangamite Shire Council Local
Government Area. Parcels greater than 40 ha are Potential Candidates for Subdivision
According to Prevailing Farming Zone Schedule and 60 ha for the Rural Conservation
Zone.
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Table 20. Number of Parcels within the Corangamite Shire Council Local Government
Area. Parcels greater than 40 ha are Potential Candidates for Subdivision According to
Prevailing Farming Zone Schedule and 60 ha in the Rural Conservation Zone.
Size Number of parcels
<1ha 302
1 - 4.9ha 645
4.9 - 10ha 188
10 - 20ha 202
20 - 30ha 201
30 - 40ha 273
40 - 50ha 226
50 - 60ha 195
60 - 70ha 180
70 - 80ha 240
>80ha 1402
Hotspot analysis for the CSC LGA indicated that highly significant clustering of high-value
land around the major towns in the south (e.g. Terang, Camperdown, Timboon; shown in red
in Figure 21a). By contrast, clustering of low value parcels were observed north of Princes
Hwy (shown in blue in Figure 21a). In an attempt to determine if ‘lifestyle’ blocks (i.e.
AVPCC = 117) were having an impact on the price of surrounding agricultural land a second
hotspot analysis was undertaken with the ACPCC 117 parcels removed. Similar highly
significant clustering of high-value land around the major towns in the south (e.g. Terang,
Camperdown, Timboon) was observed (shown in red in Figure 21b). However, there was a
considerable reduction in clustering of low-value land (shown in blue in Figure 21b)
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Figure 21. Hotspot Analysis of Land Value for the Farming Zone in the Corangamite
Shire Council Local Government Area. a) Analysis including Lifestyle Blocks (117); b)
Analysis excluding Lifestyle Blocks (117).
6.4.2 Influence of Tenancy and Holdings on Agricultural Land in Corangamite Shire
Council Local Government Area.
To establish influence of tenancy on the CSC LGA Farming Zone, tenants by holding area
(Figure 22; Table 21) and number of holdings by tenants (Figure 22; Table 21) were
investigated. To undertake this analysis, ratepayer information were merged with parcel
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spatial datasets. Approximately 3 percent of tenants own land in holdings greater than 500ha
in the Farming Zone, with the larger holdings being mostly confined to the north of the CSC
LGA (Figure 23; Table 21). A similar spatial pattern was evident for holdings by tenant (i.e.
confined to the north) and approximately 98 percent of tenants held less than 10 parcels
(Figure 23; Table 22).
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Figure 22. Tenants by Holding Area in the Farming Zone for the Corangamite Shire
Council Local Government Area.
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Figure 23. Number of Holdings by Tenants in the Farming Zone for the Corangamite
Shire Council Local Government Area.
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Table 21. Tenants by Holding Area in the Farming Zone for the Corangamite Shire
Council Local Government Area.
Size Number of tenants Hectares
<500ha 3872 267768
500-1000ha 74 50399
1000-2000ha 28 35511
2000-6000ha 8 22433
>6000ha 1 29709
Table 22. Number of Holdings by Tenants in the Farming Zone for the Corangamite
Shire Council Local Government Area.
Holdings Number of tenants Hectares
<20 3922 354005
20-50 49 38200
>50 12 21764
6.5 Key Findings – Rural and Residential (Corangamite Shire Council Local
Government Area)
A negative relationship between land parcel size and land value per square metre was
established.
Relationships were stronger when analysing the residential zones compared to the
agricultural zones.
A total of 1402 parcel were identified as eligible for subdivision (i.e. greater than
80ha)
In the south of CSC LGA there is a high degree parcel fragmentation, while in the
north land is more homogenous (i.e. larger adjacent larger parcels).
Hotspot analysis indicated clustering of high-value land around the major towns in the
south (e.g. Terang, Camperdown, Timboon).
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Clustering of low value parcels were observed north of Princes Hwy.
Approximately 3 percent of tenants own land in holdings greater than 500ha in the
Farming Zone, with the larger holdings being mostly confined to the north of the CSC
LGA.
A similar spatial pattern was evident for holdings by tenant (i.e. confined to the north)
and approximately 98 percent of tenants held less than 10 parcels.
6.6 Recent Subdivision and/or Dwelling Related Planning Permit Activity in the Rural
Zones
To provide an estimate of the planning permit activity since 2006 (Table 23) in the rural
zones of the both LGAs three methods were employed:
The extraction of scope-targeted data from primary sources
The compilation of tables and maps using the extracted data
An analysis of and commentary upon the secondary data as contained within the
tables and maps
The aim of the research was:
Document the extent of subdivision and/or dwelling-related planning permit activity
in the Rural, Farming and/or Rural Conservation Zones last 5 years 2006 – 2011 in
the rural zones of WCC and CSC LGAs
Identify any discernible patterns from the data
In general during the period 2006 to 2011, pursuant to the relevant PS of both LGAs, a
planning permit was required to ‘subdivide land’ in the rural zones. In the case of the FZ, for
example, the requirement was that ‘each [subdivided] lot must be 40 hectares’. However, this
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was only the case in the absence of an ‘area specified for the [minimum lot size] in a schedule
to [the] zone’.
Three exceptions were generally available:
The subdivision is to create a lot for an existing dwelling
The subdivision is the re-subdivision of existing lots and the number of lots is not
increased
The subdivision is by a public authority or utility service provider to create a lot for a
utility installation
Various caveats were attached to the above exceptions. One such being that ‘an agreement
under Section 173 of the [Planning and Development Act 1987] must be entered into’.
Generally, the caveats were applied so as to ‘ensure … the land may not be further
subdivided’ at some point of time in the future.
During the period 2006 – 2011, both PS had schedules attached to their respective FZ
ordinance. In the case of WCC LGA, the schedule allowed for a ‘minimum subdivision area
of 15 hectares for all land [in the FZ]’. Further, and according to the same schedule, the
‘minimum area for which no permit [was] required to use land for a dwelling [was likewise]
15 hectares for all land [in the FZ]’. It is to an explanation of the latter that this report now
turns its attention to.
In general, and according to the PS of the period 2006 to 2011, there was no requirement for
a planning permit for the proposed use of land for a dwelling (and by default, the new
construction/development of the same) in the FZ provided that the dwelling was the ‘only
dwelling on the lot’, and that ‘the lot [size was] at least the area specified in a schedule to
[the] zone’. In the case of CSC LGA, this meant that each lot (in general, save for a few
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isolated exceptions) had to be at least 40 hectares, and as previously mentioned in the case of
WCC LGA, each lot had to be at least 15 hectares.
Table 23. Number (and outcomes) of planning permit applications lodged in both LGAs
during the period 2006 to 2011.
Approved Refused Lapsed
Corangamite 28 2 1
Warrnambool 26 5 0
The position of these permit applications are shown in Figures 24, 25, 26, 27. In one example
from the 7 that were refused, Council found that a proposed subdivision was (e.g. # 14 in
Figure 24) ‘contrary to the [Planning Scheme], in that it [would] result in further
fragmentation of rural land and reduce the agricultural viability of surrounding properties’. In
another example of where a refusal occurred (e.g. #13 in Figure 24), Council found that a
proposal to develop a dwelling in the FZ would ‘impact … neighbouring agricultural land,
and [that the proposed dwelling] had no direct link to agricultural production. Both of these
examples lead one to suggest that the objective of the FZ as prescribed in the respective PS is
being met.
The spatial characteristics of the 62 applications were mapped. A study of these maps reveals
no discernible patterns emerging with respect to the location of subdivision and/or the use of
dwelling applications as triggered by a requirement of the respective LGA PS.
While there does appear to be some clustering of permit activity occurring, for example to the
west of the City of Warrnambool urban area, this does not necessarily constitute a pattern
(Figures 24, 25). Nor does it suggest that viable, productive agricultural land is being
fragmented. Furthermore, the maps show little difference between WCC LGA (15 ha
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minimum) and CSC LGA (40 ha minimum) with regard to the number of applications being
lodged.
In summary, the analysis of the tables and maps suggests that the provision within each
respective LGA PS is being applied as intended. Further, the suggestion is that both Councils
are using the discretion afforded to each in determining whether or not the various
development proposals put before them are appropriate with regards to the individual site
conditions of both the proposed and neighbouring lots.
However, it is recommended that the Councils consider drafting documents that provide
greater policy guidance around subdivision, particularly small lot excisions and proposed
excisions containing existing dwellings within Rural Zones. Specifically, the policy should
address:
The protection of high quality agricultural land.
Retention of defined township boundaries.
The size of lots excised.
Excisions containing an existing dwelling where the balance lot is consolidated into
an enlarged farming operation.
Impact on surrounding land used for agriculture.
The protection of significant vegetation and other environmental features.
Boundary realignments.
Restrictions on further re-subdivision.
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Figure 24. Subdivision Applications in Warrnambool City Council Local Government Area
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Figure 25. Dwelling Development Applications in Warrnambool City Council Local Government Area
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a)
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b)
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Figure 26. Corangamite Shire Council Local Government Area Subdivision Applications.
c)
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a)
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b)
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Figure 27. Dwelling Development Applications in Corangamite Shire Council Local Government Area
c)
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6.7 Key Findings- Recent Subdivision Activity
There were a total of sixty-two (62) planning permit applications lodged during the
period 2006 to 2011 in WCC and CSC LGAs.
Generally (save for a few examples), it was with land in the FZ that these applications
were concerned.
Of the 62 applications lodged, 54 were ‘approved’, seven were ‘refused’, and one
‘lapsed’. Table 23 provides a breakdown in numbers as to the results of the various
applications lodged in either of the two LGAs.
In summary, the analysis of the tables and maps suggests that the prescribed
ordinance as contained within each respective LGA PS is being applied as intended.
Further, the suggestion is that both Councils are using the discretion afforded to each
in determining whether or not the various development proposals put before them are
appropriate with regards to the individual site conditions of both the proposed and
neighbouring lots.
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7 Biodiversity
7.1 Introduction
Biodiversity is the variety of life and its processes. It forms an essential part of all natural
ecological systems. Biodiversity provides substantial ecological, economic and social
benefits that are often taken for granted. Loss of biodiversity can have severe consequences,
and is a matter of serious national and international concern. Biodiversity is core business for
local government. Local governments are key elements in the conservation and management
of biodiversity and threatened species in Victoria. As land use planners, local government is
responsible for planning and regulating many activities which may impact on biodiversity
and threatened species. Councils also manage large areas of public land, much of which
contains important biodiversity resources.
Biodiversity conservation is a priority goal at both the national (e.g. Department of
Sustainability, Environment, Water, Population and Communities), state (e.g. Department of
Sustainability and Environment) and regional levels (e.g. Catchment Management
Authorities), and is integral to achieving ecologically sustainable development. It requires
cooperative efforts by all spheres of government, including local government. Loss of
biodiversity is closely associated with implementation of development projects and changes
in land use. Substantial conservation opportunities exist on private land. Consequently, the
private sector also has a crucial role in biodiversity conservation.
7.2 Biodiversity and Planning Schemes
Planning Schemes can contribute to protecting biodiversity. However, they are only one of a
range of actions that can contribute to this. There are many state-wide, national and
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international biodiversity policies and strategies that are relevant to local planning schemes.
In addition to the policies and strategies covered in Table 24, Tables 2 and 4 (in section 2)
summarises the Environmental Significance Overlays (ESOs) in relation to their potential use
in protecting rural zones, agriculture, and the conversion of land. Importantly, however, the
role of landholders in maintaining remnant native vegetation and fauna habitat in their current
or enhanced condition must also be acknowledged.
Table 24. Policies and Strategies Relating to the Conservation and Management of
Biodiversity.
Victoria-wide
Future Farming (Strategy)
Growing Victoria Together
Invasive Plants and Animals Policy Framework
Living with Fire: Victoria’s Bushfire Strategy
Our Environment Our Future – Sustainability Action Statement 2006
Our Forests, Our Future − Balancing Communities, Jobs and the Environment
Our Water Our Future
Our Water Our Future: The Next Stage of the Government’s Water Plan
Regional Catchment Strategies
Securing Our Natural Future - Victoria’s Land and Biodiversity White Paper (2009)
Land and biodiversity in a time of climate change green paper (2009)
Sustainability Charter for Victoria’s State Forests
Sustainable Water Strategies
Victorian Greenhouse Strategy
Victorian Coastal Acid Sulfate Soils Strategy
Victorian Coastal Strategy
Victorian Greenhouse Strategy
Victorian Native Vegetation Management – A Framework for Action
Victorian Pest Management – A Framework for Action
Victorian River Health Strategy
Victoria’s Salinity Management Framework
Alpine Resorts (Management) Act 1997
Biological Control Act 1986
Catchment and Land Protection Act 1994
Coastal Management Act 1995
Commissioner for Environmental Sustainability Act 2003
Conservation, Forests and Lands Act 1987
Constitutions Act 1975
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Corporations Act 2001
Crown Land (Reserves) Act 1978
Domestic (Feral and Nuisance) Animals Act 1994
Environmental Effects Act 1978
Environment Protection Act 1970
Fisheries Act 1995
Flora and Fauna Guarantee Act 1988
Forestry Rights Act 1958
Forests Act 1958
Land Act 1958
Land Acquisition and Compensation Act 1986
Local Government Act 1989
Murray-Darling Basin Act 1993
National Parks Act 1975
Native Title Act 1993
Parks Victoria Act 1998
Planning and Environment Act 1987 (and the Victorian Planning Provisions)
Prevention of Cruelty to Animals Act 1986
Reference Areas Act 1978
Road Management Act 2004
Sustainable Forests (Timber) Act 2004
Victorian Environment Assessment Council Act 2001
Water Act 1989
Water Industry Act 1994
Wildlife Act 1975 Commonwealth
Antarctic Marine Living Resources Conservation Act 1981
Environment Protection (Sea Dumping) Act 1981
Environment Protection and Biodiversity Conservation Act 1999
Environment Protection and Biodiversity Conservation Act 1999
Fisheries Management Act 1991
Native Title Act 1993
Natural Heritage Trust of Australia Act 1997
Natural Resource Management Act 1992
Quarantine Act 1908
Regional Forest Agreements Act 2002
Sea Installations Act 1987
Water Act 2007
Climate Change Act 2010
Commonwealth/Federal
Australian Pest Animal Strategy
Australian Weeds Strategy
Australia’s Biodiversity Conservation Strategy
Australia’s Biodiversity Conservation Strategy (consultation draft)
Australia’s Strategy for the National Reserve System
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Coastal Catchments Initiative
Commonwealth Coastal Policy
Council of Australian Governments Water Reform Framework
Directions for the National Reserve System − A Partnership Approach
Farm Forestry National Action Statement
Framework for a National Cooperative Approach to Integrated Coastal Zone Management
Guidelines for Establishing the National Representative System of Marine Protected Areas
National Action Plan on Salinity and Water Quality
National Approach to Firewood Collection and Use in Australia
National Biodiversity and Climate Change Action Plan
National Conservation Strategy for Australia
National Framework for Environmental Management Systems in Australian Agriculture
National Framework for the Management and Monitoring of Australia’s Native Vegetation
National Framework for NRM Standards and Targets
National Forest Statement
National Local Government Biodiversity Strategy
National Objectives and Targets for Biodiversity Conservation
National Oceans Policy
National Principles and Guidelines for Rangeland Management
National Strategy for the Conservation of Australia’s Biological Diversity
National Strategy for Ecologically Sustainable Development
National Strategy for the Conservation of Australia’s Biological Diversity
National Water Initiative
National Water Quality Management Strategy
Nationally Agreed Criteria for the Establishment of a Comprehensive, Adequate and
Representative Reserve System for Forests in Australia (JANIS criteria)
Native Fish Strategy for the Murray−Darling Basin 2003–2013
Wetlands Policy of the Commonwealth Government of Australia
International
Agreement on the Conservation of Albatrosses and Petrels
China–Australia Migratory Bird Agreement (CAMBA)
Convention Concerning the Protection of the World Cultural and Natural Heritage (World
Heritage Convention)
Convention for the Control and Management of Ships’ Ballast Water and Sediments
Convention for the Protection of the Natural Resources and Environment of the South
Pacific (SPREP)
Convention on Biological Diversity (CBD)
Convention on Conservation of Nature in the South Pacific (Apia Convention)
Convention on International Trade in Endangered Species of Wild Fauna and Flora (CITES)
Convention on the Conservation and Management of Highly Migratory Fish Stocks in the
Western and Central Pacific Ocean
Convention on the Conservation of Antarctic Marine Living Resources (CCAMLR)
Convention on the Conservation of Migratory Species of Wild Animals (CMS/Bonn
Convention)
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Convention on the Conservation of Southern Blue Fin Tuna
Convention on Wetlands of International Importance especially as Waterfowl Habitat
(Ramsar Convention)
Indian Ocean–Southeast Asian Marine Turtle Memorandum of Understanding
International Convention for the Prevention of Pollution from Ships (MARPOL 73/78)
International Convention on the Control of Harmful Anti-Fouling Systems on Ships
International Plan of Action for Reducing Incidental Catch of Seabirds in Longline Fisheries
International Plan of Action for the Conservation and Management of Sharks
International Plan of Action for the Management of Fishing Capacity
Japan–Australia Migratory Bird Agreement (JAMBA)
Kyoto Protocol to the UNFCCC
Republic of Korea–Australia Migratory Bird Agreement (ROKAMBA)
Rio Declaration on Environment and Development
The Partnership for the Conservation of Migratory Waterbirds and the Sustainable Use of
their Habitats in the East Asian–Australasian Flyway (Flyway Partnership)
United Nations Convention on Biological Diversity
United Nations Convention on the Law of the Sea (UNCLOS)
United Nations Convention to Combat Desertification in those Countries Experiencing
Serious Drought and/or Desertification, Particularly in Africa
United Nations Framework Convention on Climate Change (UNFCCC) Legislation
In addition to the contents of Table 24 two further summaries have been provided below for
the WCC and CSC LGA. The first summary contains a list of species from the Environment
Protection and Biodiversity Conservation Act 1999. These lists were produced using the
Australian Natural Heritage Assessment Tool (ANHAT; from the Department of
Sustainability, Environment, Water, Population and Communities), which collates data from
a range of plant and animal surveys and collections from across Australia to generate a report
for each region. Data sources include national and state herbaria, museums, state
governments, CSIRO, Birds Australia and a range of surveys conducted by or for the then
DEWHA (Department of the Environment, Water, Heritage and the Arts). The second
summary is based on the Ecological Vegetation Classes provided by VicMap Spatial Data
Library. This information is continually updated with the best available spatial information.
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7.3 Biodiversity in Warrnambool City Council Local Government Area
Within the WCC LGA there 17 threatened species that are listed under the Environment
Protection and Biodiversity Conservation Act 1999 (Table 26).
These include:
1 species declared as critically endangered
3 species declared as endangered
12 species declared as vulnerable
1 Conservation dependent
Of these 18 threatened species, none have a recorded range greater than 2 percent within the
WCC LGA (Table 26).
Within the WCC LGA there are 14 Ecological Vegetation Classes present and cover
approximately 7 percent of the land (Figure 28). Of these EVC classes, Damp Sands Herb-
rich Woodland (DSHW), Coastal Dune Scrub (CDS) and Plains Grassy Woodland (PGW)
dominated the LGA (Table 25). Plains Swampy Woodland (PSW), Estuarine Wetland (EW)
and Coastal Landfill/Sand Accretion (CL/SA) EVC classes covered very small areas around
Lake Pertobe, the breakwater and north of the Hopkins River Bridge, respectively (Table 26;
Figure 28). Also included in Figure 29 are water bodies, tree density and the relevant
environmental overlays (i.e. ESOs, LSIO, SLO). The EVCs, tree densities, water bodies, and
relevant overlays have been included in the same map to show the spatial interaction and
overlap of these areas.
Page 151 of 175
Current and future open spaces cover 1057 and 110 hectares, respectively (Figure 28). These
areas are often connected by the various rivers and creeks within the WCC LGA and offer
potential areas for biodiversity enhancement. While many of these existing open spaces
contain remnant native flora (e.g. South Warrnambool and Maam Wetlands), other areas
would require considerable rehabilitation (Merri River north of the cattle yards near Caramut
Road). Many of these areas are also low lying and subject to regular flooding. While
revegetation with native indigenous flora is encouraged (along with a thorough assessment
and ongoing monitoring), the WCC needs to consider the appropriateness of rehabilitating a
flood plain; especially those situated close to urban developments.
Page 152 of 175
Figure 28. Environmental Overlays and Ecological Vegetation Classes for Warrnambool City Council Local Government Area. Legend
descriptors are given on page 151.
Page 153 of 175
Figure 28 Legend descriptors: ESO1= Environmental Significance Overlay 1, ESO2=
Environmental Significance Overlay 2, ESO3= Environmental Significance Overlay 3,
ESO4= Environmental Significance Overlay 4, LSIO= Land Subject to Inundation,
SLO1= Significant Landscape Overlay, AH= Aquatic Herbland, CDS= Coastal Dune
Scrub, CHS= Coastal Herbland Scrub, CHS/CTGM= Coastal Herbland Scrub/Coastal
Tussock Grassland Mosaic, CL/SA= Coastal Landfill/Sand Accretion, DSHW= Damp
Sands Herb-rich Woodland, DSHW/DH/DHWM= Damp Sands Herb-rich
Woodland/Damp Heathland/Damp healthy Woodland Mosaic, EW= Estuarine
Wetland, PS= Permanent Saline, PGW= Plains Grassy Woodland, PSW= Plains
Swampy Woodland, RS/ES/GWM= Riparian Shrubland/Escarpment
Shrubland/Grassy Woodland Mosaic, SS= Swamp Scrub, SS/AHM= Swamp
Scrub/Aquatic Herbland Mosaic. Current and future open spaces are also overlayed.
Table 25. Area Contained within each Ecological Vegetation Class within Warrnambool
City Council Local Government Area.
Ecological Vegetation Class Hectares
Aquatic Herbland 5.96
Coastal Dune Scrub 186.48
Coastal Headland Scrub 11.37
Coastal Headland Scrub/Coastal Tussock Grassland Mosaic 48.77
Coastal Landfill/Sand Accretion 3.32
Damp Sands Herb-rich Woodland 307.26
Damp Sands Herb-rich Woodland/Damp Heathland/Damp Heathy
Woodland Mosaic
17.98
Estuarine Wetland 2.95
Permanent Saline 28.24
Plains Grassy Woodland 147.95
Plains Swampy Woodland 2.53
Riparian Shrubland/Escarpment Shrubland/Grassy Woodland
Mosaic
5.44
Swamp Scrub 54.09
Swamp Scrub/Aquatic Herbland Mosaic 7.21
Total 829.54
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Table 26. Threatened Species Listed under the Environment Protection and
Biodiversity Conservation Act 1999 for Warrnambool City Council Local Government
Area. C = Critically Endangered, E = Endangered, V = Vulnerable, CD = conservation
dependent. Based on data from the Australian Natural Heritage Assessment Tool
(ANHAT; http://www.environment.gov.au/heritage/anhat/index.html). ANHAT Check
Taxonomic Classifications before Species are Included in the Database. As this is a
Rigorous Process that Takes Time, Not all Species are covered in Table Below.
Species Name Common Name EPBC
Act 1999
Status
Proportion
of sampled
range in
the region
(percent )
Neophema chrysogaster Orange-bellied parrot C 1
Balaenoptera musculus Blue whale E 1
Macronectes giganteus Southern giant-petrel E 1
Eubalaena australis Southern right whale E 1
Rostratula australis Australian painted
snipe
V 1
Thalassarche melanophris
melanophris
Black-browed
albatross
V 1
Halobaena caerulea Blue petrel V 1
Pachyptila turtur Fairy prion V 1
Pteropus poliocephalus Grey-headed flying-
fox
V 1
Litoria raniformis Southern bell-frog V 2
Megaptera novaeangliae Humpback whale V 1
Dermochelys coriacea Leatherback turtle V 1
Thalassarche cauta Shy albatross V 1
Mirounga leonina Southern elephant
Seal
V 1
Arctocephalus tropicalis Sub-Antarctic fur-seal V 1
Diomedea exulans Wandering albatross V 1
Miniopterus schreibersii Bent-wing bat CD 1
Page 155 of 175
7.4 Key Findings- Biodiversity (Warrnambool City Council Local
Government Area)
There are 17 threatened species listed under the Environment Protection and
Biodiversity Conservation Act 1999.
There are 14 Ecological Vegetation Classes present in the WCC LGA and cover
approximately 7percent of the land.
The open spaces in the structure plan provide a significant opportunity to enhance
biodiversity values within the WCC LGA.
The ESO2 has gaps on the Merri near Ponting Drive.
The Merri River and Hopkins River estuaries are not covered by any environmental
overlay.
The coastal wetlands ESO4 have no decision guidelines to assist decision making
UFZ vs a proposed PCRZ.
Russell’s Creek, Mamm wetland reserve and Tozer are not covered by an ESO.
While there are existing open spaces that contain remnant native flora (e.g. South
Warrnambool and Maam Wetlands), other areas would require considerable rehabilitation
(Merri River north of the cattle yards near Caramut Road).
Many of these areas are low lying and subject to regular flooding.
While revegetation with native indigenous flora is encouraged (along with a thorough
assessment and ongoing monitoring), the WCC needs to decide if a flood zone is appropriate
to rehabilitate.
Page 156 of 175
The existing open spaces are linked by the Merri and Hopkins Rivers which could provide
corridors for movement of native species between patches and provide opportunities for
restoration projects whilst maximising biodiversity outcomes at the landscape scale.
7.5 Biodiversity in Corangamite Shire Council Local Government Area
Within the CSC LGA there 66 threatened species that are listed under the Environment
Protection and Biodiversity Conservation Act 1999 (Figure 28). These include:
1 species declared as critically endangered
23 species declared as endangered
41 species declared as vulnerable
1 species declared as conservation dependent
Of these 66 threatened species, 17 have greater than 10 percent of their recorded range in the
CSC LGA (Table 28); with two having 100 percent of their recorded range in the region
(Table 28).
The mapped EVCs covered approximately 15 percent of the CSC LGA and were dominated
by Water body – Salt, Lowland Forest, Herb-rich Foothill Forest and Stoney Rises Woodland
(Table 27). In addition to these mapped EVC classes, a joint project between Department of
Sustainability and Environment (DSE) and CSC was undertaken in 2010 to improve existing
biodiversity mapping within the LGA. This project compiled sites of known biodiversity
significance in the CSC LGA (Figure 29).
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Table 27. Area Contained within each Ecological Vegetation Class within Corangamite
Shire Council Local Government Area.
Ecological Vegetation Class Hectares
Aquatic Herbland/Plains Sedgy Wetland Mosaic 37.11
Bird Colony Shrubland 1.53
Coast Gully Thicket 3440.24
Coastal Dune Scrub 179.76
Coastal Dune Scrub/Coastal Dune Grassland Mosaic 0.97
Coastal Headland Scrub 305.08
Coastal Headland Scrub/Coastal Tussock Grassland Mosaic 1269.71
Coastal Tussock Grassland 193.84
Creekline Grassy Woodland 387.51
Creekline Tussock Grassland 1039.67
Damp Heath Scrub 12.15
Damp Heath Scrub/Heathy Woodland Complex 1710.43
Damp Heathland/Damp Heathy Woodland Mosaic 16.04
Damp Sands Herb-rich Woodland 253.21
Estuarine Wetland 138.28
Floodplain Riparian Woodland 232.68
Grassy Woodland 77.32
Heathy Dry Forest 330.19
Heathy Woodland 15.87
Herb-rich Foothill Forest 391.31
Lowland Forest 5884.48
Permanent Saline 7866.93
Plains Grassland 8.16
Plains Grassland/Plains Grassy Woodland Mosaic 2.18
Plains Grassland/Stony Knoll Shrubland Mosaic 1107.92
Plains Grassy Wetland 20.14
Plains Grassy Woodland 1533.32
Plains Grassy Woodland/Stony Knoll Shrubland Mosaic 163.56
Plains Sedgy Wetland 46.14
Reed Swamp 5.52
Riparian Forest 807.54
Riparian Scrub/Swampy Riparian Woodland Complex 443.20
Riparian Woodland 126.43
Riparian Woodland/Escarpment Shrubland Mosaic 1.24
Scoria Cone Woodland 395.36
Sedgy Riparian Woodland 415.32
Shrubby Foothill Forest 1889.74
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Shrubby Wet Forest 25.54
Stony Rises Woodland 4375.70
Swamp Scrub 286.04
Water Body - Fresh 3135.93
Water Body - Salt 29.75
Wet Heathland 31248.01
Wet Sands Thicket 607.44
Total 70458.56
Page 159 of 175
Figure 29. Maps of High Biodiversity (a) and Threatened species (b) across the Corangamite Shire Council Local Government Area.
Maps are based on Spatial Data Obtained from the Biodiversity Asset Mapping Project Completed by the Department of Sustainability
and Environment.
a) b)
Page 160 of 175
Table 28. Threatened Species Listed under the Environment Protection and
Biodiversity Conservation Act 1999 for Corangamite Shire Council Local Government
Area. C = Critically Endangered, E = Endangered, V = Vulnerable, CD = conservation
dependent. Based on data from the Australian Natural Heritage Assessment Tool
(ANHAT; http://www.environment.gov.au/heritage/anhat/index.html). ANHAT Check
Taxonomic Classifications before Species are Included in the Database. As this is a
Rigorous Process that Takes Time, Not all Species are covered in Table Below.
Species Name Common Name EPBC Act 1999
Status
Proportion
of sampled
range in the
region
(percent )
Neophema
chrysogaster
Orange-bellied parrot C 6
Eucalyptus
crenulata
Buxton gum E 3
Perameles gunnii Eastern barred bandicoot E 2
Dasyornis
brachypterus
Eastern Bristlebird E 3
Pardalotus
quadragintus
Forty-spotted pardalote E 2
Prasophyllum
suaveolens
Fragrant leek orchid E 27
Prasophyllum
frenchii
Leek orchid E 5
Arachnorchis
lindleyana
Lindley's spider orchid E 4
Dianella amoena Matted flax-lily E 2
Thelymitra
epipactoides
Metallic sun orchid E 5
Rutidosis
leptorrhynchoides
Native daisy E 21
Xanthomyza
phrygia
Regent honeyeater E 1
Arachnorchis valida Robust spider orchid E 10
Diuris aff.
chryseopsis
Small golden moths E 24
Cullen parvum Small scurf-pea E 7
Pseudomys fumeus Smoky mouse E 4
Diuris lanceolata Snake orchid, large
golden moths
E 8
Isoodon obesulus Southern brown
bandicoot
E 5
Macronectes Southern giant-petrel E 4
Page 161 of 175
giganteus
Eubalaena australis Southern right whale E 1
Lathamus discolor Swift parrot E 3
Corunastylis
sagittifera
Horned midge orchid E 2
Speculantha atriola Snug Greenhood E 21
Balaenoptera
musculus
Blue whale E 1
Neophoca cinerea Australian sea-lion V 1
Thalassarche
melanophris
melanophris
Black-browed albatross V 1
Halobaena caerulea Blue petrel V 7
Arachnorchis
versicolor
Candy spider orchid V 12
Glycine latrobeana Clover glycine V 6
Prasophyllum
spicatum
Dense leek orchid V 16
Galaxiella pusilla Eastern dwarf galaxias V 1
Grevillea
bedggoodiana
Enfield grevillea V 100
Eucalyptus
strzeleckii
Eucalypt V 5
Pachyptila turtur Fairy prion V 6
Prasophyllum
validum
Green leek orchid V 6
Grevillea infecunda Grevillea V 88
Pteropus
poliocephalus
Grey-headed flying-fox V 2
Leiocarpa gatesii Hill daisy V 100
Megaptera
novaeangliae
Humpback whale V 1
Senecio
macrocarpus
Large-fruit groundsel V 13
Pterostylis cucullata Leafy greenhood V 7
Dermochelys
coriacea
Leatherback turtle V 1
Xerochrysum
palustre
Native daisy V 3
Pseudomys
novaehollandiae
New Holland mouse V 1
Macronectes halli Northern giant-petrel V 6
Caladenia ornata Ornate pink fingers V 5
Rostratula Painted snipe V 2
Page 162 of 175
benghalensis
Pedionomus
torquatus
Plains-wanderer V 3
Senecio psilocarpus Senecio V 7
Thalassarche cauta Shy albatross V 1
Litoria raniformis Southern bell-frog V 4
Mirounga leonina Southern elephant seal V 14
Thelymitra
matthewsii
Spiral sun orchid V 13
Dasyurus
maculatus
Spotted-tailed quoll V 1
Delma impar Striped legless lizard V 12
Arctocephalus
tropicalis
Subantarctic fur-seal V 8
Polytelis swainsonii Superb parrot V 1
Pterostylis
tenuissima
Swamp greenhood V 20
Astelia australiana Tall astelia V 17
Arachnorchis
tessellata
Thick-lip spider orchid V 8
Dodonaea
procumbens
Trailing hop bush V 3
Diomedea exulans Wandering albatross V 7
Nannoperca
obscura
Yarra pygmy perch V 24
Amphibromus
fluitans
River Swamp Wallaby-
grass
V 1
Poa sallacustris Salt-lake Tussock-grass V 40
Miniopterus
schreibersii
Bent-wing bat CD 1
Page 163 of 175
7.6 Key Findings – Biodiversity (Corangamite Shire Council Local
Government Area)
There 66 threatened species in the CSC LGA that are listed under the Environment
Protection and Biodiversity Conservation Act 1999.
The mapped EVCs covered approximately 15 percent of the CSC LGA and were
dominated by Water body – Salt, Lowland Forest, Herb-rich Foothill Forest and
Stoney Rises Woodland.
The Corangamite Biodiversity Asset Mapping project completed in late 2010 by the
Department of Sustainability and Environment provides an up-to-date resource
inventory of biodiversity.
8 Energy Production
8.1 Introduction
Victoria’s energy consumption has doubled since 1973 and is continually increasing
(Sustainability Victoria, 2009).The Renewable Energy Act 2006 requires renewable energy
sources to provide 10 percent of Victoria’s energy by 2016 (Sustainability Victoria, 2006).
Accordingly, considerable sustainable energy proposals and investments have emerged over
the past decade throughout south-west Victoria. Corangamite shire, in particular, has great
potential for wind, geothermal, wave and tidal power generation.
8.2 Wind
There are multiple Wind Energy Facilities (WEF) either operating, or proposed within the
planning process, across Victoria. While there are none in Warrnambool City Council LGA,
Corangamite Shire Council LGA has one WEF under development in the north of the LGA
and this is located between Lismore and Cressy (Berrybank Wind Farm).
Page 164 of 175
8.3 Geothermal
Using part of the federally-funded $7 million investment, Hot Rock and Greenearth Energy’s
are planning to develop a 12-megawatt demonstration plants at either Gherang or
Wensleydale that could supply power to 8000 house-holds. At present however, no
geothermal energy is generated by commercial operations.
8.4 Wave
In south west Victoria the federal government has invested over $66 million for Victorian
Wave Partners wave power demonstration project off the coast of Portland. Also the
Victorian state Government has awarded Ocean energy company, BioPower Systems (BPS)
$5 million of funding under the Sustainable Energy Pilot Demonstration Program to establish
a $14 million pilot demonstration of the company’s 250kW bioWAVE ocean wave energy
system at a grid-connected site near Port Fairy, Victoria. At present however, no wave energy
is generated by commercial operations within the WCC or CSC LGAs.
8.5 Solar
Solar power is not being generated by commercial operations at this stage.
8.6 Gas
Within close proximity to Port Campbell (in the CSC LGA) there are three gas processing
facilities: (1) Iona Gas Facility, (2) Heytesbury Gas Facility, and (3) North Paaratte Gas
Facility. These all access the Otway Basin gas fields including Minerva, Casino, La Bella,
Geographe and Thylacine. The Otway Basin is likely to see further development.
Page 165 of 175
8.7 Key Findings – Energy Production
Wind, wave and gas are likely to see further investment in the future; however they
face a variety of challenges (e.g. economic conditions, local resistance, suitable
locations).
Given the complex and involved process required to see a project to fruition, it is
beyond the scope of this report to nominate specific locations of future energy
developments.
It is likely that future energy developments (both renewable and non-renewable) will
need to consider proximity to existing infrastructure.
Buffer distances to property boundaries and to sensitive uses (e.g. occupied dwellings
and perceived impacts upon property values) will need to be considered.
Given the high environmental values outlined in section 7, potential landscape and
biodiversity impacts need to be considered.
Perceived impacts on health to humans and livestock. For example, noise is a
contentious issues, particularly with wind farms.
9 Climate change
9.1 Introduction
Understanding climate change and its potential implications is very difficult because it
requires the interpretation of long term trends. The extent of which human activities are
affecting climate on macro and micro geographic levels is not clearly understood. There is
mounting evidence that the variability of Victoria’s climate is likely to increase (CSIRO and
BOM 2007). This may exert various impacts (e.g. water resources, primary production,
infrastructure, biodiversity, bushfire intensity and frequency and the health of landscapes and
Page 166 of 175
humans). The potential impacts relevant to rural land use planning in the region are
summarised below. However it is difficult to provide a degree of certainty around these
potential impacts as climate change science is advancing exponentially.
9.2 Water
Climate change, coupled with further expansion of urban populations, is likely to influence
water resources within the WCC and CSC LGAs. However, unlike much of Victoria which is
reliant on the Murray Darling Basin, most of the water resources used in the WCC and CSC
are extracted from major river systems (e.g. Hopkins River) within each LGA. Accordingly,
managing the water resources within these LGAs is considerably less complex than other
regions in Victoria. However, the average annual runoff in the rivers of the south-west may
decrease by 5 percent to 30 percent by 2030, and 10 percent to over 50 percent by 2070
(Jones and Durack, 2005). This reduction in available surface water suggests the need for
more efficient water use by the residents, agriculture and industries within the WCC and CSC
LGAs. Lower flows and higher temperatures may also influence water quality and the
incidence of algal blooms.
9.3 Primary production
Agriculture plays an important role in the global and Australian economies. However,
potential changes in climate may reduce productivity and output in agricultural industries in
major producing countries, including Australia, in the medium to long term. Of particular
interest to the CSC LGA is the impact of future climate changes and associated declines in
agricultural productivity. By 2030, Victoria’s wheat, beef, sheep meat and dairy production
could decline by 3-9.6 percent and by 7-13 percent by 2050, relative to 1990 agriculture
production (Table 28; Gunasekera et al., 2007). Further, as the analysis presented in sections
Page 167 of 175
6.3.3 and 6.3.4 above, there appears to be a southward trend of suitable cropping land and a
contraction of suitable dairy land based on the 2040 MAXENT prediction. However, the
actual reduction in agricultural production for the WCC and CSC LGAs remains largely
unknown.
Table 28. Change in Agricultural Production in Victoria Relative to 1990 Production
Values. Adapted from Gunasekera et al., (2007).
Agriculture 2030 2050
Wheat -9.6 -13
Sheep meat -8.1 -12
Beef -3 -7
Dairy -4.6 -10
9.4 Biodiversity
Climate change may have direct or indirect impacts on biodiversity. For example, species
may alter distribution, abundance, behaviour and the timing of events such as migration or
breeding. The most susceptible species will be those with restricted or specialised habitat
requirements, poor dispersal abilities or small populations. There may also be increased
pressure from competitors, predators, parasites, diseases and disturbances (e.g. the frequency
and intensity of bushfire or drought). Climate change is likely to amplify existing threats such
as habitat loss and invasive species, making their impacts potentially worse. However, there
has been little research on the potential impacts that changing climate may have on
biodiversity within the two LGAs.
9.5 Coastal Impacts
While the influence on increased flooding events has received considerable attention (e.g.
Dennington Flood Study 2007, South Warrnambool Flood Study Report 2007, North
Page 168 of 175
Warrnambool Flood Study for Merri River and Russell Creek 2007) the influence on the
coast has received less attention within the WCC and CSC LGAs.
Global sea levels are projected to rise 0.18 to 0.59 m by 2095, with a possible additional
contribution from ice sheet melts of up to 7 m (IPCC, 2001). Larger contributions to global
sea level rise from more rapid melting of polar ice sheets is possible, although scientists are
unable to estimate these increases until they have a better understanding of the processes
involved (IPCC, 2001). However, it is highly likely that sea level rise combined with
increased storm events and surges will result in damaging waves, wind, flooding, erosion and
damage to infrastructure, coastal and marine ecosystems. A storm surge is elevated sea level
caused by a low pressure system and intense winds. A storm surge will have maximum
impact when combined with a high or king tide. Storm surges are likely to occur more
frequently due to changed wind patterns, rainfall and sea surface temperatures. Consequently,
erosion and inundation, already a feature of some parts of Victoria’s coast, may worsen with
climate change. This is especially relevant to the South Warrnambool area. By contrast the
CSC LGA’s coastline is predominately high limestone cliffs. Nonetheless the coastline is still
exposed to the erosive effects of the Southern Ocean, albeit acting a much longer timeframe.
However, some areas of the townships of Port Campbell and Princetown are situated on
relatively low lying regions at the estuaries of subcatchments that may be prone to the
influence of heavy runoff coinciding with storm surges.
Since the early 1990s, the Victorian coast has experienced sea level increases of between 2.6
and 2.8 mm per year (Department of Climate Change and Energy Efficiency, 2010). It is
estimated that up to 48,000 residential buildings, with a current value of around $11 billion
may be at risk of inundation from a sea level rise of 1.1 m in Victoria Department of Climate
Page 169 of 175
Change and Energy Efficiency, 2010). A 1.1 metre sea level rise will also put up to 3,500 km
of Victoria's roads, up to 125 km of railways and up to 2000 commercial buildings at risk.
These assets have an estimated value of up to $9.8 billion, $500 million and $12 billion,
respectively Department of Climate Change and Energy Efficiency, 2010). Considering that
Victoria has recorded increases approximately 2.8 mm per year, it is prudent to consider the
potential impacts associated with upper limits of these projections. For a visualisation of the
broad-scale potential sea level rise, the Australian Government has also produced a series of
maps available at OzCoasts (http://www.ozcoasts.gov.au/).
9.6 Key Findings – Climate Change
Climate change is unlikely to have a measurable effect on WCC LGAs agricultural
production due to its relatively small size (120 km2) and location (south west Victoria
where the impacts of climate change are predicted to be minimal).
The impacts of climate change will likely be felt more in the CSC LGA, particularly
in the northern areas (see sections 4.4.3 and 4.4.4).
The predictions of more extreme weather events (e.g. storm surges and flooding) are
more likely to affect WCC, in particular South Warrnambool. In the CSC LGA low
lying parts of Port Campbell and Princetown are at most risk. Most of the coastline in
the CSC LGA comprises high cliffs; however these will still be exposed to the erosive
effects of the Southern Ocean, albeit acting a much longer timeframe with less
infrastructure at risk.
Page 170 of 175
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